Empowering communities by Kate Feeney

A NEW VISION FOR REAL CHANGE IN LOCAL GOVERNMENT www.fiannafail.ie

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OCTOBER 2013

Empowering Communities

Empowering Communities A new vision for real change in local government

Table of Contents Executive Summary

CHAPTER ONE – Introduction

CHAPTER TWO – Status Quo

CHAPTER THREE – Engagement

CHAPTER FOUR – Leadership

CHAPTER FIVE – Delivery

CHAPTER SIX – Finance

CHAPTER SEVEN – Integrity

CHAPTER EIGHT – Conclusion

APPENDICES

1 EMPOWERING COMMUNITIES A NEW VISION FOR REAL CHANGE IN LOCAL GOVERNMENT

Executive Summary Fianna Fáil’s local government policy is based on the role of local government in driving job creation, democratic representation, civic participation and providing key local services. It offers a fresh vision of the future of how we can govern ourselves, provide meaningful democratic engagement for citizens, help local business grow and deliver services efficiently. Creating a strong local government is a core part of transforming the political structures of the state all the way from the corridors of the cabinet to the local community hall. It sets out a new, responsive structure of local government that will help tackle the problems that matter to people ranging from local job losses to anti-social behaviour down the street. Five key themes of Engagement, Leadership, Delivery, Finance and Integrity are the pillars of the Fianna Fáil’s republican vision for radically transforming local government in Ireland to get it working for ordinary people.

Engagement A new Community Council Model fairly distributed across the country and town councils for areas with over a population of 7,500 to replace the old unbalanced Town Council structure will bring government closer to the citizen and empower locals to have a real say in planning issues, address local on the ground problems and help create a strong sense of place in their communities. Plebiscites on local issues, the roll out of the SOWIT program across the country, expanded routes for citizen participation in the planning process all form a new focus on creating a more vibrant democracy that is not simply about casting a vote once every five years in the local elections. These new avenues of engagement will help bring government back to citizens and give them a real say and ownership of how their communities are run. • • • • •

Enhancement of Town Councils across towns with a population of over 7,500 Creation of new voluntary Community Councils structure across the country in areas with no town council Greater engagement through on-line facilities Plebiscites on issues such as LAP Continual Citizen participation in the Planning Process

Leadership Greater leadership through Directly Elected Mayors replacing County Managers has the potential to take the initiative and cut through the bureaucratic problems that plague administration and prioritise new ideas in shaping our communities. For example a Dublin Mayor could begin to make the most of Dublin’s maritime tradition and position beside the sea as Mayor Pasqual Maragall did in Barcelona. A radical new system of a fixed cabinet in charge of services areas will increase scrutiny and accountability as well as drive on reforms and efficiency in service delivery. Opening up the council with new working structures will help encourage broader participation in political life. A new Local Government Regulator will continually review the overall system

2 EMPOWERING COMMUNITIES A NEW VISION FOR REAL CHANGE IN LOCAL GOVERNMENT

• • •

Directly Elected Mayors across every City in the country and subsequently every Local County Executive Powers for Directly Elected Mayors who will act a champions for their area across the country and globally A new Cabinet style system to replace the Corporate Policy Groups and Strategic Policy Committees that offers enhanced effectives, accountability and a greater role in shaping policy for councillors

Delivery The greatest test for any form of government is whether it can deliver for its citizens. Fresh powers for local government will make it more relevant and responsive to the needs of citizens and help create local jobs. New powers in job creation and delivering important local services such as sports and recreation is a core part of a new local government structure. Fianna Fáil will help promote job creation by creating a more flexible and dynamic local government that can access funding from central government and the EU as well as revamped local measures such as a new commercial rates regime to promote job stimulus measures and help local small business to grow and flourish. New powers in funding sports and recreation, a revamped water services provision model drawing on the on the ground knowledge and delivery expertise of local government, enhanced accountability and engagement with An Garda Siochana, an expanded role in education and fresh powers in setting Rent Supplement rates with landlords will fundamentally expand what Local Authorities can do to deliver for citizens. Local Authorities will now take the lead in tackling climate change from the bottom up. • • • • • • • • • •

New competitive funding pot for enterprise support and initiatives New credit facilities for local enterprises New Role in tackling Climate Change through Climate Change Plans and Policy Groups Greater partnership with Educational providers Expanded role in Policing oversight New Public Mutual owned company with Local Authorities providing on the ground water services Greater powers in providing recreational services and supporting sports and community groups through Lottery Grant Distribution and new planning powers Key role in local culture and tourism using local libraries and educational facilities Secondment program for officials to get private sector experience and attract private sector personnel into Local Authorities Local Government Regulator to oversee the reforms, make recommendations and provide independent comparisons in service

Finance Value for money and flexibility must be at the heart of funding local government. Businesses across the country are struggling under an unfair commercial rates system. We will transform the rates system with an inability to pay clause and link it with rent levels to ensure greater fairness and flexibility. New forms of finance such as Tax Increment Finance and 3 EMPOWERING COMMUNITIES A NEW VISION FOR REAL CHANGE IN LOCAL GOVERNMENT

bonds as well as community levies as voted on by citizens have the potential to stimulate growth with targeted local projects. -‐ -‐ -‐ -‐

Overhaul Commercial Rates System Tax Increment Financing and Local Bonds Full implementation of the Local Government Efficiency Review Enhanced Auditing facilities

Integrity A series of measures to restore public trust in local government and ensure the highest levels of probity in political life are an integral component of the Fianna Fáil vision for the future of local government. Anti-Corruption Plans as standard, an enhanced auditing system, complete transparency on planning issues and declaration of interests, a greater role for SIPO and training for Councillors will help create the highest standards of governance in our local authority structure. • • • • • •

•

Our proposals, underpinning the five main themes of Engagement, Delivery, Integrity, Finance and leadership have the potential to radical transform local government and make it a hub of innovative solutions to local problems, not a part of them. Giving citizens the opportunity and financial strength to pursue fresh solutions to the problems of struggling local businesses, inadequate sports facilities or anti-social behaviour will transform the nature of governance in Ireland into a more responsive process that tackles the issues people care about.

4 EMPOWERING COMMUNITIES A NEW VISION FOR REAL CHANGE IN LOCAL GOVERNMENT

CHAPTER ONE - Introduction This policy paper sets outs the case for a radical new departure in local government in Ireland. It outlines a clear vision for change that will transform the relationship between citizens and government across the state in an unprecedented manner. Systematically overhauling how local government works and getting back to the basics of helping local businesses thrive, promoting real local democracy, fostering civic republicanism and delivering efficient services is the most fundamental political reform that we can undertake to change the way politics works in Ireland. Across several chapters this paper identifies the problems in local government as it stands and sets out a series of sweeping reforms that will help revitalise local economies and radically shift power back to citizens reflecting the founding republican values of the state. Local Government is an integral part of the democratic process, plays a major role in the local economy and provides vital services across the country. However, local government in Ireland is one of the weakest across the EU in terms of powers and fiscal independence; it also has one of the highest proportions of people to councillors. While significant reforms have taken place over the past number of years ranging from the seminal Local Government Act of 2001 to Constitutional recognition of Local Government in Article 28A the area has immense untapped potential to play a leading role in “In ‘Putting transforming governance in the state. In “Putting People First” the government has set out a series of cuts to the area but as Edmund Burke put it “to innovate is not to reform”. The changes announced by the Minister Hogan in setting out his Local Government agenda do not mark a real improvement in local democracy. Instead they smack of a crude short termism that ultimately short changes citizens.

People First’ the government has set out a series of cuts to the area but as Edmund Burke put it “to innovate is not to reform.”

As the layer of government that is closest to the citizen the possibilities of developing the relationship, input and participation of ordinary people in government are dramatic and seriously underexplored. The need for change comes against the immediate backdrop of the economic challenge and crisis of governance facing the country. However the demand for reform must also be viewed from the broader fundamental trends shaping the state with Ireland becoming an increasingly urbanised (62% of the population now live in urban areas in Ireland compared to 42% in 1951) and educated country in a globalised world. The institutions of the state must reflect the reality of modern Ireland and not simply “Real reform anachronistic historical entities. In order to best serve the from the bottom needs of people the way we govern ourselves must be up has the revised from the ground up and adapted to a new Ireland.

potential to transform Irish politics in ways the flawed constitutional convention never could.”

The EU “subsidarity” principle of decisions being taken at the closest possible level to the citizen, enshrined by the 1992 Maastricht Treaty, is best embodied by an active functioning local government. Ireland is also a signatory of the European Charter of Local Government in 1997 which asserts the integral role of local government in the democratic process. The plans of the current government to reduce and abolish 5

EMPOWERING COMMUNITIES A NEW VISION FOR REAL CHANGE IN LOCAL GOVERNMENT

local government bodies without a clear and coherent vision for local democracy simply centralises power in the hands of the Government. Profound Political reform was promised in the Programme for Government but has not been delivered upon. Real reform from the bottom up has the potential to transform Irish politics in ways the flawed constitutional convention never could. Rather than piecemeal, haphazard changes across separate areas, reform must be holistic with the overall structure of the State borne in mind. In many regards the localism of Irish national politics can be traced to the emasculated nature of local government in the State. T.Ds are drawn to focus on overwhelmingly local issues as a result of the vacuum created by ineffective representation and powers at the local government level. The myopia this instills in political discourse damages our capacity to focus on broader national issues and compounds the failure to attract sufficient numbers of high calibre people into public life. The provision of a strong and meaningful democratic forum that oversees the effective, efficient delivery of services lies at the very heart of local government and underpins this policy paper. Fianna Fáil’s local government policy is based on the roles of local government in local business, democratic representation, civic participation and providing key local services. It offers an alternative vision of the future of how we govern ourselves and deliver services efficiently. Creating a strong local government is a core part of transforming the political structures of the state all the way from the corridors of the cabinet to the local community hall.

“Creating a strong local government is a core part of transforming the political structures of the state all the way from the corridors of the cabinet to the local community hall.”

Five key themes of Integrity, Engagement, Leadership, Delivery and Finance are the pillars of the Fianna Fáil vision for radically transforming local government in Ireland.

Engagement – Bringing power back to the grassroots using community councils and utilising the IT revolution for new exciting ways to engage citizens. Reforming the council structure to reflect modern realities will enhance service delivery across the country.

Leadership – Directly elected Mayors have the potential to act as champions for their area, take the initiative on new innovative services and balance the powers of unelected officials.

Delivery – Local Government must be enabled to step up to the mark and help foster job creation across the country and deliver for local communities. Expanding the powers of local government into new areas will help foster a new era of service delivery and citizen engagement with local government across areas of importance to local citizens.

Finance - Maximising Value for money in the delivery of services and ensuring that every cent spent is accounted for will transform the pace and effectiveness of services across the country under expanded council function areas. Independent Revenue raising abilities with an overhauled commercial rate system will alleviate the pressure on rate paying businesses and ensure that local money is spent on local projects as set out by local people. 6 EMPOWERING COMMUNITIES A NEW VISION FOR REAL CHANGE IN LOCAL GOVERNMENT

Integrity – Creating a strong ethical framework for all elected representatives is a key part of restoring trust in public life, upholding republican values and encouraging greater participation in the political process.

These radical changes will help revitalise local democracy and transform local government in Ireland in unprecedented ways. It is the kind of real political reform that the Irish people have demanded and it is the meaningful reform that Ireland needs to face up to the challenges of the modern world. The opening chapter of this paper sets out the remit and reasons for Local Government and the current status of local government in Ireland. It identifies the problems with local government as it stands. The remaining chapters deal with each theme individually, putting forward a series of proposals to transform this tier of government. The unifying themes of Engagement, Leadership, Delivery, Finance and Integrity tie the policy proposals together. Empowering Communities offers the chance to profoundly change Irish politics in a bold new way. It’s time to change how we do politics in Ireland. Let’s start from the bottom up and empower communities to start tackling the challenges that we face.

7 EMPOWERING COMMUNITIES A NEW VISION FOR REAL CHANGE IN LOCAL GOVERNMENT

CHAPTER TWO - Status Quo In this chapter the reasons for having local government and the current problems that exist in the Irish model are explored. Looking to the future of Local Government it is important to outline what purpose it serves and how it currently fails to live up to its potential.

Table 1. What does Local Government do?

What does Local Government do?

Local Democracy

Provides Services

Agent of Central Government

Tier of government closest to the citizen and most responsive to communities

Provides roads, water, planning, environment, amenities, education

Collects motor tax and distributes educational grants for central government

Regulator Regulates planning and environmental standards to local, national and EU standards.

Instrument of Local Democracy As the tier of government closest to the citizen, local government is the embodiment of democracy at work on a local level.

First level of political education 133 T.Ds out of 166 or 80% of Dáil members have previously been members of Local Government. Membership of Local Authorities is a useful training ground for national politicians and can be used to experiment with new ideas with limited potential negative impact that can be later used at a national level. This was the view of the great philosopher John Stuart Mill in his trenchant defense of Local Government. It is also a useful platform from which to encourage greater female and younger participation as well as from other traditionally under represented groups such as ethnic minorities. 8 EMPOWERING COMMUNITIES A NEW VISION FOR REAL CHANGE IN LOCAL GOVERNMENT

Reinforces a sense of place and community Local government presents a platform to represent and articulate local concerns; it also represents a sense of community and creates a level of government that, in theory, should be most responsive to the local community. The county structure in Ireland was developed as a British administrative unit and is now synonymous with local identity with the GAA county team system a strong reflection of this.

Delivers services at the level nearest to the citizen Local government is a key deliver of services such as transport, education, water, housing, planning, amenities and the environment. The government is now paring away certain services such as water. In other countries such as Germany, France or a similar sized country like Denmark local government is entrusted with areas like Education and Welfare services.

Acts as an agent of Local Government The distribution of grants, collection of Motor Taxation are examples of Local Government acting on behalf of central government.

Acts as a local on the ground regulator The enforcement of standards such as planning regulations or environmental standards either from an EU/National or local level is in the hands of local government. Planning systems in other countries, such as certain states in the USA, place certain aspect of planning powers on street appearance, façade architecture etc in the hands of much smaller community council style groupings.

Safeguard against central control and dominance The concentration of power in a central body exposes the state to an unhealthy centralisation of power in fewer and fewer hands. Dispersing power across various units’ provides checks and balances against an over powerful central government.

Why we need Reform In light of the broader reasons underpinning why we have Local Government, it is all too apparent that the Irish model suffers from serious shortcomings. Limited functions, lack of financial powers, constrained representation and restricted citizen engagement as well as the need for new structures all serves to undermine local government in Ireland.

9 EMPOWERING COMMUNITIES A NEW VISION FOR REAL CHANGE IN LOCAL GOVERNMENT

Functions Local Government in Ireland stands as one of the most limited across Europe in terms of the range of services it provides and the resources available to it. Areas such as transport, recreation, welfare, education and health that are an integral component of local government functions in other European states are not functions of the lower tiers of Irish governance.

“Local Government in Ireland stands as one of the most limited across Europe.”

Finance It also suffers from a sharp vertical fiscal imbalance with central government the overwhelmingly dominant source of revenue rather than local resources. In 2010, 41% of Local Government income came from Central government, indicating a heavy reliance upon the central exchequer and “A more pertinent lack of local discretion in how revenue is raised and spent. question is A plethora of reports and recommendations dating back to whether the 1970’s such as the Barrington report 1990, KPMG councillors are Financing Local Government Report 1996 and the Indecon doing what they Financing Report of 2005 have all pointed to the need to address the lack of independent fiscal powers. are supposed to?”

Representation and Engagement There are 1,627 elected local government members in Ireland. This breaks down into 883 County and City Councillors and 744 Town and Borough Councillors. The average population per councillor in Ireland is 2,815 people. This is the highest proportion in the EU 15 with the UK in second with 2,664. It compares with an average of 118 in France or 1,115 in Denmark, a similar sized and populated country. It is untrue to simply say that Ireland has too many elected representatives in light of the fact that we have the lowest number of councillors relative to population in the EU 15. A more pertinent question is whether these councillors are doing what they are supposed to? Reduced numbers should reflect new powers as part of holistic reform rather than a misguided slash and burn policy.

10 EMPOWERING COMMUNITIES A NEW VISION FOR REAL CHANGE IN LOCAL GOVERNMENT

Table 2. Comparative number of Councillors Country

Population

France Germany Italy Belgium Greece Denmark Portugal U.K. Ireland

60m 83m 58m 10.3m 10.6m 5.4m 10.1m 61m 4.58m

No. of Relevant Local Councils 36,700 15,300 8,100 589 1033 275 308 468 114

Average Population per Council Area 1,600 5,400 7,100 17,500 10,300 19,600 32,800 127,350 36,842

Average Size of Council

Population per elected Cllr

14 15 12 22 10 17 29 49 14

118 350 608 811 1,075 1,115 1,131 2,664 2,815

Structures and Leadership The County Council institutional structure of local government remains largely unchanged since the 1898 Local Government Act except for the abolition of Rural District Councils in the 1920s and the introduction of county managers in 1940. The 1990s witnessed a number of changes including in the removal of the ultra vires rule, introduction of new policy structures such as Strategic Policy Committees, creation of the General Local Government Fund from motor tax receipts, constitutional recognition under Article 28A and abolition of the dual mandate. The 2001 Local Government Act introduced a series of modernising measures and new policy structures.

“The County Council institutional structure of local government remains largely unchanged since the 1898 Local Government Act.”

The 2009 McCarthy Report specified the abolition of Town Councils and the reduction of the 34 city and county councils into 22 units. The 2010 Local Government Efficiency Review group earmarked some €511m worth of savings in the sector. It recommended the amalgamation of 20 city and county councils; the transfer of powers involving planning, roads and housing from town councils to county councils; a reduction in staff numbers (currently at around 30,000); and increased powers for the remaining managers. These recommendations represent the policy discourse backdrop to the revamp of the local government structure.

11 EMPOWERING COMMUNITIES A NEW VISION FOR REAL CHANGE IN LOCAL GOVERNMENT

CHAPTER THREE - Engagement This chapter sets out a series of measures to radically transform how citizens engage with local government through measures such as Information Technology initiatives and new Community Council models, devolving real power closer to the citizen. It outlines a series of structural transformations to the current architecture of Local Government.

Main Proposals • • • • •

Abolition of Town Councils Creation of voluntary Community Councils Greater engagement through on-line facilities Plebiscites on issues such as LAPs, re-call votes on underperforming councillors. Continual Citizen participation in the Planning Process

Enhancement of Town Councils in towns with a population of 7,500 The wide disparity of population, powers and revenue amongst Town Councils illustrate the challenges that the current local government structure faces to be relevant in modern Ireland. The perverse situation where Celbridge with a population of over 15,000 does not have a Town Council while Clones, with a population of just fewer than 1,500, does is indefeasible. In order to expand “The perverse citizen participation and overhaul the local government situation where structure to respond to the demands of modern Ireland the Celbridge with a Town Council structure should be rolled out on the basis of a population of 7,500 population baseline. In contrast to the slash and burn approach adapted by the government in “Putting People First” the enhancement of Town Councils will be carried out in close conjunction with the establishment of a new local government model that genuinely moves power away from the centre to the levels closest to the citizen. Existing town councils below the threshold will be retained.

over 15,000 does not have a Town Council while Clones with a population of just under 1,500 does is indefeasible.”

Community Councils • • • • •

Tier of Local Government closest to the citizen Community Councils for all areas not covered by Town Councils on a legislative basis Clear powers to allow citizens the first voice in the Local Area Plan. Ability to raise finance locally for local projects. Structure to organise community events and festivals

12 EMPOWERING COMMUNITIES A NEW VISION FOR REAL CHANGE IN LOCAL GOVERNMENT

“Giving them a formal legislative role with clear duties and rolling them out across communities throughout the country marks a real devolvement of power to the citizen.”

• Utilising IT for popular engagement and real interaction A new community council model operated on a voluntary participation basis forms the bedrock and first tier of Fianna Fáil’s vision for a new local government structure. The model builds upon the existing relatively informal structure of Community Councils across the country which play a leading role in organising local festivals, providing a forum for local concerns, responding to planning issues and working in cooperation with community groups. Giving them a formal legislative role with clear duties and rolling them out across communities throughout the country marks a real devolvement of power to the citizen.

County Councils would designate Community Council Areas throughout their local authority area with citizens having the right to petition their LA to establishing a Community Council in their area. The Community Council structure should reflect the natural community of an area with villages and towns having a single community council for their area. The size of the council should range from 7-15 depending on the size of area it covers with large towns having 15 and smaller villages 7. Members of the council should be elected from an AGM open to attendance and votes by those on the electoral register. The Community Council could also extend an ex-officio non-voting positions to representatives of local community groups as decided by the AGM. Votes on specific issues such as a Local Area Plan which would be drafted by the Council would then be submitted to a general vote open to the entire community.

Table 2. Community Council Numbers

Population

Total Towns

Total number of current Town Councils within pop. range

New Town Councils to be created

New Community Councils to be created within pop range.

7,500 +

5,000 – 7,500

2,500 – 5,000

1,000 – 2,500

136

128

Table 3. Total number of Community and Town Councils Total number of Community Councils

Total number of Town Councils

173

13 EMPOWERING COMMUNITIES A NEW VISION FOR REAL CHANGE IN LOCAL GOVERNMENT

Councils would be empowered to organise local events such as community festivals, hold plebiscites on street name changes, community levies for specific projects, be the first port of call in developing the Local Area Plan in conjunction with Local Authority Officials. The Community Council will also be consulted to provide a submission upon any major planning permissions within its area. This process “It is a real will involve setting out planning priorities and the location of future example of development and amenities in the area. The capacity to hold a vote local money on a Community Levy provides an opportunity to allow the entire being spent community to help finance specific projects such as a Community on local Playground or Sports facility for their area as decided by local people. projects.” It is a real example of local money being spent on local projects. Members of the Council will undertake their duties on a voluntary basis while assistance where needed in planning issues will be provided by Local Authority officials excluding he need for expenditure on the new structure aside from any start up costs. Finance for activities, festivals and other activities will be raised locally or through the Community Council applying for grants from the County Council or central government. “The Community Council

model takes the best elements of the old town council structure, applies it fairly across the county and removes the expense.”

The Community Council model takes the best elements of the old town council structure, applies it fairly across the county and removes the expense. It draws on the deep well of civic pride in Ireland and harnesses it to give local citizens a real voice in how their community is shaped.

New Avenues of Engagement •

Roll out of the SOWIT Program across all Local Authorities and Community Councils

•

Live streaming of all Council meetings

•

Open on-line Q & A forums with Councillors and officials

•

Ensuring that planning documentation is freely available on-line as recommended by the Mahon Tribunal

•

Facilities for lodging complaints and proposing solutions

•

Plebiscites on local issues

•

Participatory budgeting such as in Recife, Brazil

•

Petitions for action on specific areas

Greater participation has underpinned the previous proposals in terms of widening access to elected political life in various capacities, whether it is in relation to part-time councillors, elected Mayors or established Community Councils. The 2006

“Local Government is in the ideal position to address the creeping sense of alienation people feel from government with clear measures to engage citizens.”

14 EMPOWERING COMMUNITIES A NEW VISION FOR REAL CHANGE IN LOCAL GOVERNMENT

Taskforce on Citizenship and more recently the work of We the Citizens shows a real appetite amongst the public for engaging with the political system and taking an active role in decision making. Local Government is in the ideal position to address the creeping sense of alienation people feel from government with clear measures to engage citizens. The Fianna Fáil vision for local government aims to empower citizens to ensure a government “of the people by the people and for the people” from the bottom up. A number of practical initiatives could be introduced to involve the public and enhance accountability. Area Committee meetings could be held in various parts of the area rather than fixed in the Council buildings with opportunities for the public to question Councillors, officials and introduce items on the agenda before the meeting. Progress is already being made in the area through the SOWIT project between researchers in UCC, TCD and Kilkenny County Council. More than just using IT for canvassing for local’s opinions it also forms the basis for producing viable solutions to the problems that local areas face. Problem areas can be identified, officials can respond and solutions put forward in an on-going interactive on-line engagement. The SOWIT Program forms a model that should be rolled out “Shadowing days for across all Local Authorities and used in close conjunction with the new Community Council Model. students and A percentage of local expenditure should be earmarked for participatory budgetary which citizens outline exactly where money should be spent on local projects.

Councillors to get a view of daily political life in a local area combined with youth parliaments.”

Shadowing days for students and Councillors to get a view of daily political life in a local area combined with youth parliaments with some fiscal resources could help engage young students. “This will help

ensure that there is enhanced transparency and openness in the planning system.”

Integrating the recommendations of the Mahon Tribunal in relation to planning process transparency with greater on-line access to decisions, submission and stated reasons for significant decision will further enhance citizen knowledge and involvement. The tribunal further recommended making all planning reports in relation to Development Plans freely available on the internet. This will help ensure that there is enhanced transparency and openness in the planning system.

Plebiscites on particular issues can be called for after a minimum number of electors sign up, re-call votes on underperforming Councillors and the Directly Elected Mayor after a petition with a minimum amount of electors adds a further dynamism to civic engagement with the council.

15 EMPOWERING COMMUNITIES A NEW VISION FOR REAL CHANGE IN LOCAL GOVERNMENT

CHAPTER FOUR - Leadership This chapter sets out the need to establish Directly Elected Mayors across the country. It outlines the powers and role that a directly elected Mayor will play in transforming Local Government by providing it with real leadership. It also outlines the bold new concept of a Cabinet style system to improve decision making in the Council and re-balance powers between unelected officials and Councillors.

Main Proposals • • •

Directly Elected Mayors across every City in the country and subsequently every Local County. Executive Powers for Directly Elected Mayors who will act as champions for their area across the country and globally. A new Cabinet style system to replace the Corporate Policy Groups and Strategic Policy Committees that offers enhanced effectives, accountability and a greater role in shaping policy for councillors.

Directly Elected Mayors • • • • •

Provide leadership Drive forward reform agenda Build profile for Local Government Enhance accountability Greater public engagement

Leadership The argument for Directly Elected Mayors rests upon the concept “The argument of leadership. A key individual provides an opportunity to drive for Directly forward an agenda, fight for the advancement of local government Elected needs, heighten the visibility of the local authority and the locality Mayors rests itself, as well as broadening engagement with the public and upon the promoting greater accountability. In the Irish case a directly concept of elected mayor would require specified powers, a full time, leadership.” remunerated position and a clear definition of their relationship with the county manager who currently commands immense influence in the system. Beyond the referendum of a Dublin Mayor there is no reason why other urban centres Cork, Limerick, Galway and Waterford could not be led by directly elected mayors before moving to implement this model across all counties in the long term. This incremental process should allow for sharing of best practice local authorities.

Accountability Mayors provide clear lines of accountability and effective leadership so that it is clear to everyone “where the buck stops”. The unique legitimacy and mandate of mayors, combined 16 EMPOWERING COMMUNITIES A NEW VISION FOR REAL CHANGE IN LOCAL GOVERNMENT

with the stability of a political term in which mayors cannot be removed from office at the whim of political colleagues, can enable bolder and braver choices to be made in a way that divvying up the Cathaoirleach position amongst parties cannot. This means that mayors can take up the challenging role of breaking down the silo effect of the civil service and tackle the issue of local government financing which needs to be developed in tandem with structural reform.

Profile An outward looking approach is crucial and if we are to compete with cities across Europe and globally, a strong champion and ambassador will be key. Whether this is attracting inward business investment or lobbying for national or European funding, mayors have a vital role to play. For instance, working within the Committee of the Regions Structure in Europe to secure EU grants or European Investment Bank funding, a Dublin Mayor could help secure additional money for specific Dublin projects such as revitalising Dublin Bay and utilising Dublin’s maritime tradition.

“if we are to compete with cities across Europe and globally, a strong champion and ambassador will be key.”

International Examples The successful London bid for the 2012 Olympics launched by Ken Livingstone is perhaps the most striking and high-profile example of the role a mayor can play in getting a big achievement for their area. There are also a number of international examples of the contribution mayors can make in generating local economic development as set out in Table 3.

17 EMPOWERING COMMUNITIES A NEW VISION FOR REAL CHANGE IN LOCAL GOVERNMENT

Table 3 – International Examples of Successful Mayors Mayor of London - Ken Livingstone

Ken Livingstone successfully bid for the Olympic Games to be brought to London. Mayor Boris Johnson helped ensure the games were a tremendous success that bolstered London’s international profile and created a strong sense of civic pride in the city.

Mayor of Dresden – Herbert Wagner

Mayor Herbert Wagner, used his tenure to boost tourism in his city, overseeing the building of a new airport terminal, and collaborating with neighbouring Berlin and Prague to persuade travel companies to market package tours in the region.

Mayor of Chicago - Rahm Emanuel

Chicago Mayor Rahm Emanuel has just launched a bold new Chicago Infrastructure Trust. This Trust aims to finance infrastructure projects, by leveraging private capital to fund critical infrastructure projects which would then repay the investors without selling off public assets.

Mayor of New York - Rudy Giuliani

Mayor Giuliani led the transformation of New York through combating crime with a “zero tolerance” approach and his leadership in the dark moments of 9/11 stand out as an example of real civic leadership.

Mayor of BarcelonaPasqual Maragall

Pasqual Maragall led the transformation of the waterfront in Barcelona in a major urban renewal project. Maragall used his unique leadership position to realise his vision to “turn Barcelona around to face the sea”

Mayor of Rome Francesco Rutelli

Francesco Rutelli led the re-vitalisation of the city centre of Rome, refurbishing and re-opening museums as part of his sweeping cultural, economic and environmental agenda. Rutelli’s efforts led to a resurgence in tourism in Rome.

Powers Specific powers are critical to creating a strong position that attracts high calibre civic minded people to the post. The Mayor should be • • • • • • • •

Chief Executive of the Local Authority. The current county manager’s role would be changed into that of a Secretary General. Head of the Council Cabinet leading the agenda for the Council. Chief Ambassador for the locality at home and abroad. Lead the Council representation at regional level. Member of the Transport Authority in regional areas while City Mayors should be the head of the Transport Authority in their area. Select Chief Superintendent of the Garda District from an approved list with powers to dismiss if performance is not up to scratch. Directly accountable to independent Planning Regulator Subjected to re-call votes

This blend of powers and responsibilities will ensure a dynamic executive that leads from the front and is fully accountable to local people on the local decisions they make. The 18 EMPOWERING COMMUNITIES A NEW VISION FOR REAL CHANGE IN LOCAL GOVERNMENT

government has simply kicked the issue to touch with a limited plebiscite confined solely to Dublin. We believe that the Mayoral model should be extended to all Councils and Cities as a matter of government policy. This will re-balance power away from unelected bureaucrats towards the elected officials of the people.

Cabinets • • • •

Real power and responsibility to Councillors An enhanced service based political system Greater political engagement in Council service areas Attract diverse and high calibre people in elected local office

Local Government is structured around a series of key services it provides namely, housing, transportation, water and sewage, culture & amenities, environment planning, education, social, agriculture and miscellaneous. The current system sees each Strategic Policy Group committee with a chair head up policy making efforts on behalf of the elected members. There is also a Corporate Policy Group of all SPC chairs. In tandem with the introduction of an executive leader, the establishment of “Local Ministers”, for the duration of the council’s five-year term in charge of each service area driving forward reform and “Local Ministers offering clear accountability would be a major advancement would be in charge on the current part time haphazard SPC and CPC system. of their section Local Ministers would be in charge of their section akin to a akin to a Cabinet Cabinet Minister ensuring accountability and clear leadership Minister ensuring in each function area. The “Local Ministers” would be drawn accountability and proportionately to party strength, be selected by and sit with clear leadership in the directly elected mayor in a cabinet. A diversity of party each function positions on the Cabinet would encourage cross party efforts and act as a check on the Mayor. area.” These individuals will have their activities scrutinised by ordinary councillors serving on committees in each area and in overall council meetings where decisions have to be passed as is the case now. A majority of Councillors can also remove the individual from the position if they are underperforming.

19 EMPOWERING COMMUNITIES A NEW VISION FOR REAL CHANGE IN LOCAL GOVERNMENT

Table 4- A new Council Structure for the 21st Century Cabinet Local Minister