How’s this for an admission guaranteed to alienate old comrades and make me look like a geek? I am a really big fan of Cabinet Office Minister Francis Maude.
Watching him speak last week at the Downing Street celebration of a hundred mutuals spun out form public services I realised his ordinary bloke appearance and deadpan style are increasingly reminiscent of Jack Dee. At one point he told the admiring audience of mutual pioneers that he belonged to the ‘JFDI’ school of management (JDI stands for ‘just do it’). Apparently, when he explained to Cabinet Office officials he wanted to see more mutuals they asked him whether he was asking for new regulations, new legislation or maybe a cabinet committee? ‘Tell you what, how about just setting up some mutuals?’ was his characteristic response.
Having achieved his target of a hundred – many of them like Hull City Health Care Partnership both substantial and successful and most of them, despite austerity, growing – Maude’s ambition has expanded. Following the excellent recent report by Chris Ham on the importance of engaging NHS employees, Maude has urged ministers in the health department to accelerate the development of employee mutuals in the NHS.
This is not the first time the Cabinet Office minister has tugged the tail of his colleagues running big service departments. The Government Digital Service – which Maude defends robustly from its Whitehall and industry detractors – has caused many a ripple by challenging the cosy relationship between departments and the major IT systems integrators and by asking tough questions about over-complicated, secretive and unrealistic delivery plans (in the case of the DWP and Universal Credit these questions reportedly ended with a Cabinet bust up). Maude has considerable credibility in these spats because of his own command of detail, as the IT firms that were called in early in his tenure to renegotiate contracts can attest.
Best of all, IMHO, Maude is a champion of radically different ways of thinking about policy making itself. As well as backing the successful mutualisation of the behaviour change unit, he sponsored the setting up of a design based Policy Lab in the Cabinet Office (still small but well led by Andrea Siodmok FRSA. He is also an enthusiast for open policy making of which I have written warmly on this site. I don’t want to be indiscreet about the conversation I had with him after the formalities of the mutuals event but it is safe to say that if there is a battle in Downing Street over whether the Conservative manifesto should focus on themes, methods and direction or on detailed policy promises he will be on the right – former – side.
The Labour Government elected in 1997 promised to change the way Government worked. It even published a long since forgotten white paper on modernising Government in 1999. But although there were innovations – like devolution to the nations and London, the Policy Action Teams and Public Service Agreements – in terms of rethinking the relationship between state and public, nothing Labour did matched the John Major’s Citizens Charter (much derided at the time). Maude’s innovations continue to be at the edges of Whitehall, but as his thinking grows in influence (partly because he JFDI) I suspect he too will be looked back on a as a genuine pioneer.
I think we have persuaded Francis Maude to speak at the RSA in the autumn reflecting on his experiences as Cabinet Office minister and speculating on what government’s operating system could and should be in five years’ time. Hopefully he will be in broad agreement with some of what I said in my recent annual lecture….
The values and analysis behind the Power to Create encourages a questioning of the very idea of traditional policy making.
The success of most social policy interventions – the interventions that could help foster mass creativity – rely on what academic and former Canadian cabinet secretary Jocelyne Bourgon calls ‘civic effects’ that is the public engagement, mobilisation and behaviour change. But civic effects are more likely to emerge from political leaders articulating a clear vision, convening new conversations and collaborations, leading by doing than through the slow, cumbersome process of developing and implementing policy. When it comes to social policy, politicians and managers need to replace the blunt tools of policy making with those of design, in which continuous experimentation, learning by failing, co-producing with consumers and users is the norm. This, of course has major implications for our systems of law making and accountability.
If he does confirm a date we must see if Jack Dee is free to be his warm-up.
It may not be immediately apparent from the news headlines, which were dominated this morning by Iraq and will tonight be fixated on En-ger-land, but today is a big day for British social democracy. Our leading left of centre think tank, ippr, has publishing a milestone report of its long and impressive Condition of Britain inquiry and it has been launched by Labour leader Ed Miliband.
The ippr report is comprehensive and contains many detailed policy recommendations, but most significant perhaps are some subtle shifts in the broader narrative about Britain’s challenges and the goals and methods of social democratic reform. In an article about the report ippr director Nick Pearce hints at a number of changes of emphasis.
There is a move from a simple redistributive economism. Pearce writes: ‘social equality and how we relate to each other as citizens matters as much as material equality in closing the gap between rich and poor’. Progressives need to focus more on power and accountability and this means ‘giving more power to counties and cities’ and ‘to ‘engage individuals and civil society in shaping what the state provides’. It seems that a critique of centralism is now just about universal on the centre left. Whether this conviction would survive the temptation of Labour having central power is an entirely different matter.
Another important theme can be seen as a return to ideas way back in ippr’s previous major report for Labour in opposition, the 1994 Commission on Social Justice. One the one hand, the legitimacy of the state must be rebuilt through greater conditionality and reciprocity. On the other hand, public spending must focus less on remedial interventions and more on those which enhance people’s opportunities to be self-reliant: ‘more fences at the top of the cliff, fewer ambulances at the bottom’ as the 1994 report put it, or ‘a hand up not a hand out’ as Tony Blair used to say.
Finally, there is a stronger emphasis on institutions; ‘social reforms embodied in shared institutions are more durable that those which rely on transactions’ Pearce writes. The report proposes volunteer-led neighbourhood justice panels, an Affordable Credit Trust and neighbourhood networks led by older people.
The ippr report deserves to widely debated. It demonstrates a genuine willingness to examine and address the weaknesses of the social democratic message and method in the modern world. This includes an important recognition of the need for a new form of ‘statecraft’. Yet, ultimately, apart from shifting power from Whitehall to town hall, it fails to provide a sufficiently bold account of what that new statecraft might involve, particularly the need for the centre left to reduce its reliance on its favourite fix – policy itself.
Evidence of the problem lies in Ed Miliband’s speech at the report launch, a response couched in terms of a set of new policy commitments. He wants us to know Labour has given up the idea that public spending is the answer to every problem but deos not seem ready to give up the idea that public policy is the answer to every problem.
‘Well, what do you expect from a putative Prime Minister’ he, or you, might reasonably respond. What if, as I have argued in previous posts, the whole apparatus of policy making and democratic scrutiny is increasingly incapable of achieving the impacts on society that it intends?
The point here is not that we don’t need policy, nor that it isn’t better to have good policies than bad ones (the ippr report contains many policies which are better than both the Coalition’s and the last Labour Government’s), but that we need to think of policy as fuel for a strategy of social renewal, not the engine of that renewal.
If I could insert a paragraph in to the Party leaders’ conference speeches this year it would be something like:
‘ In a fast changing world, facing ever more complex problems and with an ever more independently minded citizenry the right an election victory gives us is not to exercise power but to try to create it’
Power is created by – amongst other things – the authenticity and clarity of leadership, the ambition and integrity of the conversations and collaborations that leaders help to convene, the quality and scale of new and reformed institutions emerging from people solving problems together, and the degree to which civic culture animates individuals and communities to direct their energies towards social progress.
Good policy making (and there is precious little of that around) can reinforce and amplify these aspects of a dynamic society but in the modern world policy increasingly rarely generates positive social energy on its own. To give one obvious and rather tragic example, if Blair’s Labour has taken the time and effort to make the abolition of child poverty a broad based and deeply felt movement it might have persisted as a national goal. Instead it was presented as a set of technocratic national policies for which people felt little affection or responsibility, and now the goal has been abandoned. Ultimately for all its many strengths the ippr report, and even more Miliband’s response reaffirm a policy driven view of social change.
An alternative technology of change isn’t easy to get your head round if you have spent a life equating social change with policy change. To articulate it would be hard and risky – it would, for example, involve a manifesto which was much stronger on analysis and vision and much lighter on policy.
But if my argument seems detached from political reality, ask yourself this; what do the British people seem to want right now – better leadership, a clearer vision and more reason to hope…or more policies?
Watching ippr and Ed Miliband lay out their serious thinking it seems unfair that it is overshadowed in some newspapers by more evidence of the voters’ lack of affinity for Labour’s leader. Then again, perhaps voters implicitly grasp better than even the most intelligent parts of the centre left what really matters when it comes to the possibility of social progress.
The daily manoeuvring we are already seeing ahead of next year’s General Election can seem rather pointless. What has really changed in the polls in the last two years? Aren’t we continuing to meander towards another hung Parliament with the only unanswered question - which is to be the biggest Party – being ultimately resolved by a few thousand votes in a short list of marginal seats? Probably: but more in hope than expectation I’ll offer a way for things to become more interesting.
General Elections tend to be fought on three primary terrains: values, competence and future. Arguments about record and specific policies matter less for themselves than the degree to which they symbolise and reinforce these themes.
Labour is ahead on values, its traditional strong point; the Party scores relatively well on measures such as ‘speaks up for ordinary people’. The Conservative response is a sometimes uneasy mixture of appeal to people’s grievances about immigrants and those on benefits plus a quieter insistence that the Party continues to care about social mobility and poverty. Labour has tried to neutralise the first set of issues by sounding tough on claimants and immigration while choosing issues such as the bedroom tax to assert a value choice between the two largest Parties. The Lib Dems’ favoured position is to share Labour’s critique of ‘uncaring’ Conservatives but also to claim to be free of the less popular baggage of the labour movement.
The Conservatives are ahead on competence. They will be disappointed that the economic pick-up does not yet seem to have turned this advantage into a deal-clincher with the electorate. Sooner or later the Tories will launch a huge attack on the ‘riskiness’ of a Miliband Government’. They will be hoping this has an effect as powerful as the 1991/2 attack on Neil Kinnock (they may even be tempted to update the famous ‘L’ plate poster).
Labour has being trying to improve its competence rating. Thus there have been pledges on spending and borrowing and steps to improve the quality of Labour’s front bench. One of the reasons Nick Clegg entered Government was to establish the Lib Dems as a serious Party of Government. So far this hasn’t worked out well in terms of popularity but I suspect Clegg and his team will be in a stronger position come election time, albeit having to deal with insistent questions about who their favoured post-election partner would be.
While on values or competence we are dealing with fairly predictable game plans, when it comes to ‘future’ we are still largely in the dark. The future pitch is not just, or even mainly, about promises or aspirations. To win ‘future’ a party has to predict tomorrow in a credible way which lodges the idea that only that party understands and is prepared for that future.
The lack of future narrative may partly betray the limited time horizons and ambitions of the parties but it is also a reflection of the tough period we have been living through. Until recently any attempt to mobilise a positive future vision would have been seen as irrelevant, complacent or both. But that is changing. ‘Future’ is now up for grabs, and unlike values and competence it is far from clear who will wrestle control.
Much though it interests me, it’s not my job as RSA CEO to speculate on political strategy or election outcomes. However, my analysis does offer an opportunity to wider civic society. Whilst there is little most of us can usefully do on values and competence other than reinforce various existing positions, when it comes to ‘future’ there is room for creativity, agenda-setting and new alliances.
To repeat, future is not just about aspirations. More interesting are scenarios; what do we think are the likely major trends that will shape the next ten years? And can we press the parties to start showing us they understand these trends, are prepared for them, and how they would seek to shape them? In short, which party seems to ‘get the future’ most convincingly.
For example, I have been writing quite a lot (here and here) about the trends making central Government less effective and blunting the tools of traditional policy making. Who has the best plan to deal with the decline of the centre? Population ageing is another key trend. We talk about the specifics of health and social care and universal benefits but what about the deeper demographic trend towards a society where there are many more older people, some more younger people and fewer in-between? What kind of society will and should this be? As long as a different hollowing out – of the middle of the labour market – continues tinkering with minimum wages and tax credits it is not likely to make any significant difference. Is this something we simply live with or is any party willing credibly to commit to restructure the labour market?
The widespread assumption a few decades ago that globalisation would lead to a homogenisation of domestic economic and social policy has been largely confounded. There are significant differences between countries and different routes to success and to ruin.
Let’s hope that, amidst the attacks and retail policy offers, the next few months also sees the emergence of something that resembles a debate about alternative strategies for Britain (assuming, that is, there still is a Britain). Even better would be if this was a debate (unlike 99% of party politics) where the parties might in some areas agree to differ and let voters make an informed choice from the futures on offer. If the RSA could play a part in hosting such a debate I’m sure we’d be up for it.
The think tank, ippr, has an unconditional place in my heart matched only by West Bromwich Albion and the RSA so I have been trying to work out why the Institute’s recent pamphlet ‘Many to many – how the relational state will transform public services’ didn’t grab me in the way its reports usually do.
The report (which follows two others in similar vein) is in essence an appeal to the centre left to abandon its centralist assumptions and adopt a set of ideas about devolved, joined up, empowering public services; ideas which have in truth been around for decades. The spur is not so much state failure – indeed, the report is at pains to list policies the state has successfully implemented – but that modern policy challenges – like managing chronic health conditions or reducing long term unemployment – are ‘complex’ requiring the state to use its power in different ways.
Thus the report seeks to adapt the social democratic political economy of the state. But what if the starting point for that political economy is wrong? Might that wrong starting point help to explain why ideas like the relational state are so often talked about on the left but so rarely amount to anything much when Labour runs central or local government?
The key issue concerns the location of power and definition of value. In the conventional social democratic model – implicit in this report – power resides in the state and value in the capacity of the state to achieve its political and policy objectives. The source and nature of these policy objectives is assumed to be relatively unproblematic, being seen as an expression of a Government’s democratic mandate and progressive purpose.
However, an alternative model sees power residing in society and the evidence of Government’s value lying not in its capacity to achieve its goals but in the degree to which it is able to to mobilise social power towards aims to which citizens explicitly aspire. A successful Government is not merely one that has implemented is objectives (indeed the relationship between policy implementation and social capacity may be inverse) but one which has increased the capacity of society to improve itself.
In my annual lecture, for example, I suggested ,firstly, that social power had three forms (the individualistic, solidaristic and hierarchical); secondly, that the most powerful societies, organisations and policies mobilised all three sources; and thirdly, that the UK is currently suffering from a deficit of solidaristic and hierarchical power. From this perspective the way the central state operates as a dysfunctional and mistrusted hierarchy is as likely to sap as enhance social power.
To look at a more specific dimension: levels of social trust and trust of institutions appears to be a better predictor of a nation’s future economic dynamism than levels of human capital (defined primarily in terms of education and skills). Yet the very way the state operates can undermine social trust. Bo Rothstein is not alone in arguing that welfare means-testing reduces trust by making state bureaucrats intrusive and often arbitrary judges of claimants, by encouraging claimants to game the system and also because claimants are seen to game by non-claimants. This is now a suppurating wound in the UK social body: we are simultaneously experiencing unprecedentedly high levels of sanctioning of benefit claimants and of public hostility to claimants.
In work on reintroducing the contributory principle to welfare, ippr has recognised this issue, but it also intrudes into public services. ‘Many to many’ explores how a more relational state might better encourage people to be active in managing their own health and social care needs but – as a carers’ representative pointed out at a recent RSA seminar – the needs testing of social care eligibility continues to provide an incentive for people to focus on their incapacity.
In a blog post I can only offer a highly truncated exposition of a bigger argument but to get to the core of it: if the goal is a state which has good relationships with citizens which in turn generates capacity for social progress there are several profound and inter-related problems:
The increasingly problematic idea of policy-driven change (as laid out in my last post).
The oppressive logic of bureaucratic working (identified by the ippr report but in rather technocratic terms)
The frequent lack of alignment between the interests of political decision makers (with their increasingly weak mandate) and the public good
There are no easy answers. Replacing a statist with a social political economy is only the starting point for a long iterative journey to an as yet only hazy reform agenda, an agenda which is likely in many ways to be more radical than anything currently on offer. My concern is that this report, like recent speeches from Ed Miliband and Jon Cruddas, doesn’t recognise the deep, endemic, structural failings of the modern state. Thus while the principles and reforms it proposes are largely sensible (albeit not that different from the aspirations espoused by Coalition ministers) the reasons they have proved so very hard to act upon is left largely unexamined.
This morning at an RSA seminar on demand management the inspirational chief executive of a genuinely reforming and innovative local authority shared her experience of spending sustained time looking at services from the point of view of citizens and front line workers. ‘We talk about troubled and chaotic families’ she said ‘but what about troubled and chaotic public services?’. It reminded me of something once said by Professor Stephen Coleman: ‘the problem of civic engagement is hard to reach groups, and there is no harder to reach group than politicians’.
The vehicle of state is not working; its engine unreliable, its steering awry. Most social democrats seem still to hope we can get away with replacing parts of the body work.
For those of us who think the Westminster and Whitehall model of public policy is fatally flawed, there was cause for hope in speeches last week by Ed Miliband and Jon Cruddas: Devolving power, opening up Government – especially its data – and building services around the preferences and needs of citizens were all important themes.
The problem is we have heard most of this before. A recent Institute for Government pamphlet surveys the mixed record of initiatives in an English system that remains among the most centralised in the developed world and concludes:
While all parties have been good at making commitments to devolve power, governments have found it hard to implement decentralising reforms in practice.
And here is a quote that would fit neatly into either Labour speech:
The effects of this redistribution of power will be felt throughout politics, with people in control of the things that matter to them, a country where the political system is open and trustworthy, and power redistributed from the political elite to the man and woman in the street
These are the words of David Cameron in 2009, promising as Prime Minister to create a ‘post bureaucratic state’.
Yet, when it comes to letting go of power, the Coalition has been another Government with a mixed to mediocre record. On the positive side of the ledger lie significant initiatives including City Deals and community budgets, on the negative side are the top down reforms and ceaseless micro management of major Whitehall service departments, as well as the decision to place the main burden of austerity on to the shoulders of local authorities. In addition there are half baked schemes including Police and Crime Commissioners and the Community Right to Bid which someone with a Machiavellian outlook might suspect were designed to give people-power a bad name.
I largely exempt from my scepticism the Open Policy Making team in the Cabinet Office. My enthusiasm however has less to do with what has yet been achieved – not much – than with its starting point. It is this analysis of the fundamental failings, not just of aspects of central Government, but a whole way of thinking about power and policy which is missing from the account of both Miliband and even the more thoughtful Cruddas.
To believe that next time could be different for Labour we need to hear points like these:
For many decades the overall record of central Government public policy has been atrocious
I am not here merely referring to the well-known cock-ups forensically analysed by Crewe and King in their excellent recent ‘Blunders of our Governments‘ (e.g. Child Support Agency, London Underground PPP, Poll Tax), nor even the failure of major outsourcing projects like NHS patient records or most of the Work Programme.
In the thirty years since Margaret Thatcher’s second term our health service and schools have been subject to almost continuous intensive reform. Imagine if across this time, hospitals, GPs and schools had received the same funding to spend as they deemed best but with some basic mechanisms to ensure community and citizen accountability. Imagine also that instead of all the legislation and regulation and ring fenced budgets, central Government had restricted its role to acting as a strategic resource providing information, good ideas and networks, and only intervening in extremis and then only to demand a local solution. Isn’t it pretty likely that the health and school system would have evolved – learning from success and failure – into something equal or better than what we now have? Then, finally, imagine that the many tens of billions of pounds that have been spent on centrally mandated re-organisation had been available to invest in front line services.
The forces making central Government policy inept are accelerating
Partly this is about politics and the media: parties getting weaker and more unrepresentative, news becoming 24 hour and increasingly shrill in its desperate attempt to grab public attention. But more fundamental is the complexity and pace of change of modern life.
It is an axiom of Open Policy Making that change outside large organisations is now often faster than change can take place inside such bureaucracies (leaving aside the whole problem about the demarcation of inside and outside). Government with its cumbersome processes of policy making, regulation and accountability is even slower to adapt than the major corporations that have for years been trying to discover the secret to ‘agile’ operation. The slow, sludgy, distorting feedback loops of traditional Government policy-making are a recipe for continual under-performance and occasional farce.
Rather than the problem for policy being mobilisation, the problem for mobilisation is policy
The tools of traditional policy makers are regulation and money. Confronted by growing evidence of failure and public disenchantment, Whitehall decision makers have sought to graft on elements of public engagement. There has been ‘voice’ in the form of consultation and various consumer rights and ‘choice` in the form of greater diversity of provision and some capacity for citizens themselves to decide who they want as a service provider. Not all of this has been superficial. For example, direct payments for social care is a genuinely radical shift, albeit hampered by falling budgets. But by taking a narrow consumerist angle on policy problems, some reforms have generated bad outcomes. Enhanced parental choice over school places has become a stronger driver of inequality.
Most new initiatives from those who consider themselves modernisers are an extension of voice and choice, like Miliband’s promise to strengthen the right of parents to demand intervention in weak schools (never mind that such a power already exists). But this misses the point.
Generally, the goals of public policy – a better educated, more law-abiding, healthier citizenry – by their very nature depend on public mobilisation. This is not just about individual behaviour change but also wider social consent to change, as well as civic engagement in designing and driving that change. Thus the question should not be ‘how do we mobilise citizens around the policy we have chosen?’ but ‘who are the citizens and groups who influence outcomes in any given area?’, ‘how might we engage and mobilise them behind a shared vision of progress?’ and ‘does that involve traditional central policy (with all is inherent failings) at all?’
The way to predict the future is to create it
Jon Cruddas offered five principles for Labour’s policy review: ‘1. Transformation 2. Prevention 3. Devolution, 4. Collaboration and cooperation, 5. Citizenship and contribution. But what about ‘design’?.
Observance of Chatham House rules requires me to protect the source of the following brilliant observations from an official currently seconded to the Cabinet Office.
‘Having never worked in Whitehall I spent a few weeks wondering around, going to meetings and watching people work. After a while I figured it out: Central government is basically a publishing house. It is full of people writing stuff, contracts, consultation papers, regulations. These things take ages to write. Because they are so long and complex they inevitably contain flaws that are only discovered when they are implemented.
‘Innovation for designers involves doing stuff and testing it on people, for policy makers it means writing stuff and selling it to people.
‘Policy makers and designers have a fundamentally different view of mistakes. Designers like mistakes because they provide useful information that can be used to adapt and improve the model. Policy makers hate mistakes because they are so hard to undo, so they tend to ignore or suppress information about failings.
Around the world social innovation labs and service designers are making incursions into Government, but their work still feels tenuous, a bolt-on to the creaking old system. A design-based approach to change needs to be seen as a radical democratising project deserving support from the top not just a clever bit of technique to be tolerated at the margins…….
There is little in this post that is incompatible with the themes of Labour’s recent speeches. Indeed, from a passing reference he makes to expanding the work of the Government Digital Service, it seems Cruddas knows an incoming Labour Government should try to preserve the best of what is going on in the Cabinet Office.
But Labour and the other parties must take heed of the failure of previous governance reform. Cruddas and Miliband argue eloquently that the reform they advocate reflects the best traditions of the centre left. But Cameron maintained the same thing from the right. Vague aspirations and a basket of unconnected policies will not do. We need the central pillars of old policy making to be dismantled for the simple reason that the only alternative is continued failure.
The real test will be this year’s party conferences and next year’s manifestos. In the run up to the election the Institute for Government’s prosaic observation should be put in neon lights above every party HQ:
‘Party leaders must also be careful not to allow their colleagues to develop strong positions on policy areas they hope to decentralise’
Postscript: This afternoon I met up with Susannah Walden who has been working on our Whole Person Recovery project. Maybe because it’s her last week here she was frank about the challenges of our ‘people-powered’ approach and what we have had to learn from getting things wrong as well as right. The fact that user-driven, design based, experimental change is hard is another – perhaps the most important – reason we need to understand that existing policy methodologies are bust. Otherwise when things get tough we will be tempted to revert to the illusion of central control.