Seen from a certain distance, local government looks untidy and inefficient. The same functions are replicated hundreds of times over. There is limited scale efficiency of operations. Boundaries create anomalies and inconsistencies. So it must make sense to join it all up, to standardise, to have common platforms and common tools. The counter-argument is that that perspective misses out the fact that local government is, well, local. Place matters. Priorities differ. And as both result and cause, there is a political dimension to local government which is quite different from the politics of national government. And so the debate rumbles on.
Its latest incarnation is the idea that there should be much greater integration of local government online services as a way of bringing the overall standard to a much higher level, an argument sometimes framed as the need for a GDS for local government. Harry Metcalfe and Alex Blangry have written a powerful polemic (with some useful pointers to other contributions to the debate) which concludes with a call for revolution:
I think it is hard to argue that local government, Parliament, the NHS and housing are much further along than where central government was in 2011: small pockets of excellence in a sea of business as usual. Small incremental changes are just that: small and incremental. As the user experience of these parts of a citizen’s online life falls behind the rest of the internet, can anything less than a complete revolution in approach be appropriate?
That’s all very well, but just what is it that might need revolutionising? Sarah Prag (newly moved from GDS to a more local world, so well qualified to judge) is clear that there needs to be a more specific question with more specific answers – a shopping list not a monolith. She lists 16 things GDS does which you might – or might not – want to replicate for local government, ranging from limitless cake and bunting to a shared publishing platform. As an indirect response to that, Richard Pope tries to break down the questions, rather than the possible answers. From his list, three strike me as getting to the essence of the issue:
Geography is core. The information and services that local government provides are often inherently geographical in a way that central government is not.
Democracy and power matter. Local governments are independently elected to provide services, in a way that separate government departments are not.
The same problem is being solved many times over, or, at least a set of very similar problems, are being solved by each local authority. And that is just an obvious frustration and inefficiency.
That’s all good stuff, but it brings me back to the starting point of Sarah’s post, where she asks:
There’s been a lot of renewed chat recently (see below) about “a GDS for local government’ or “GOV.UK for local government” but I’m curious about what people really mean when they use these terms. What is it that “GDS” represents in these conversations – a central team of specialists? A set of standards? A publishing platform? A mandate? All of the above?
The one I want to focus on – and which is the real purpose of this post – is the mandate. In sixteenth place on Sarah’s list of things a local GDS might want to copy from the central one comes:
A mandate to force through change, backed by a senior minister
GDS did not begin the search for coherent, consistent, user-focused, efficient government online services, and it may be that we need to look further back for some of the lessons. Directgov did not manage to become gov.uk, and one of the reasons for that, certainly in the early days when I had most to do with it, was the lack of commitment and hard cash from departments. Even when it did work, questions such as how to manage the structure and editorial voice of the whole with the sometimes divergent priorities, approaches and tone of the parts were never fully resolved. GDS has benefited from a political willingness to be centralist about this in a way which hadn’t existed before. Without that, trying to make progress with a small number of central government departments under common political leadership was very hard. It seems unlikely that making progress with a much larger number of local authorities with varied and competitive political leadership would be any easier. Aiming at a GDS for local government and achieving (at best) a Directgov might not be quite the breakthrough the Jacobins have in mind. Harry and Alex think they have the solution to that one:
Sometimes in this sector, the only way to change things is with primary legislation and a big stick. It’s important to bring everyone along on the journey, but without a few bruised egos, the journey is unlikely even to begin.
I may be being unfair, but a call for legislation in this context feels more like a cry of despair than a practical solution. Demanding change to hearts and minds by edict tends to be more attractive to authors of edicts than to owners of hearts and minds.
I don’t have a simple answer, or indeed any answer, to the question of where the mandate should come from or whose mandate it should be. That may be a failure of knowledge or imagination on my part, or may mean that there isn’t an easy solution waiting to be found. But I do have three thoughts about how to frame the problem in a way which may make it easier to to work towards a solution.
Symptoms and causes
The first thought is that we need to be clear about what are symptoms and what are causes. That matters because tackling a cause is likely to change the symptoms, while focusing on the symptoms is less likely to have an effect on the underlying cause. A joined up government can produce a single website more easily than a single website can produce a joined up government. So not for the first time, the digital symptom is at risk of being mistaken for the underlying cause. Maybe it would be better if local government were less local, but if that were the underlying problem, the approach to digital service design and delivery would be a consequence of that, not a way of achieving it.
The one heroic surge view of history is always attractive, but it’s almost never complete. GDS in part represents radical change and discontinuity, but it is also in a part a clear successor to what went before:
The innovation of gov.uk does not lie in the concepts it embodies. What is striking is not how new those are, but how little different from the ambitions of a decade ago. The innovation of gov.uk lies instead in taking brilliant advantage of a moment in time – a political, technical, financial and personal concatenation which was never quite in place before.
The fact that gov.uk is the third generation single central government website doesn’t mean that it would take another fifteen year trek through the wilderness to get to the promised land for local digital delivery. But it should, perhaps, prompt the question of what the stages might be and how those stages should build up towards the goal – and critically what a good first step could be which heads in the right direction. The idea that a local GDS could somehow be conjured fully formed out of thin air is more than a little unrealistic. As so often with policy development, the question is not whether there is a better place. It is whether you can get there from here.
Layers and scope
This debate is often framed in all or nothing terms. It’s nonsensical to develop the same systems hundreds of times over, let’s just standardise on one. It’s absurd to impose a single one size fits nobody solution on authorities with different needs and different priorities, let’s resist any kind of standardisation.
A better answer might come from breaking the question down. There almost certainly isn’t a single right answer for everything here, the question is where the efficiency of standardisation outweighs the value of local variation. That may well vary within individual services – to take one fairly random example, the processing of parking tickets needs very little variation, the work patterns of the wardens who issue them needs more to ensure that they maximise the effectiveness of their interventions, and engagement with people to decide how parking should be managed in my street is intensely local.
My starting assumption would be that a common design for case processing could be useful but a common design for local engagement wouldn’t. Whether or not that’s the right answer, though, is much less important than that it strongly suggests that there isn’t a single answer which is right.
From questions to answers to questions
All of that may seem like a slow and laborious way to reach not much of a conclusion. But that should almost be a virtue in this context. What this debate strongly suggests is that a single grand plan with an all-encompassing approach to delivery is unlikely to work. That in turn has something to do with the fact that without a clear objective, there is no benefit in a having a grand plan. It’s possible that a local GDS is the right solution to a problem – but I have yet to see a clear statement of what that problem is or of why it would be the best solution. In the end, it may be less important to understand how a local GDS would work than to understand why it would work.