A few different things have come together recently to make me wonder what county councils are for, and what they are achieving.
The first has been the repeated suggestion that Wales has 'too many' councils and that we will need to rationalise the number. It's most often accompanied by a claim that Wales cannot afford 22 Directors of (insert Education, Social Services, or whatever here). The argument feels right, but is not generally accompanied by much light about what the 'right' number is, or how we arrive at that magic number.
The second has been the increasing regulation and drive for standardisation of services across councils, often presented as 'ending the postcode lottery'. The implicit assumption is that there are some services which are 'too important' to allow there to be any variation in quality of provision, or the nature of the provision. (Or in extreme cases some seem to be arguing that we should not even permit a different spend per head).
And the third is the increasing financial pressures on local authorities, all of which are claiming that this year's settlement is the 'tightest ever' (a phrase that I don't think I've heard since last year), and that cash is going to get even tighter in future (with a suitable amount of hype and exaggeration about the likely implications thrown in for good measure). And with something like two-thirds of council funding supplied by the Welsh Government, councils always have a convenient scapegoat to hand.
One consequence of the third factor is that a number of councils are looking to distinguish between the statutory services (which they have to provide), and the non-statutory services (which they do not), and to concentrate their efforts and finances increasingly on the first. Within current legislation, and from the councils' viewpoint, that is a pretty logical decision to be making.
But, if we take a step back a moment, is there a case for standing that logic on its head, and moving to a situation where the councils deal only with the non-statutory services?
After all, the principle of local democracy is that people can exercise local choice, through electing a council, on what level of services they want and are prepared to pay for. And if they want a bit more of one type of service, and a bit less of another, they should be able to choose that.
However, in relation to the statutory services, there is an increasingly diminishing scope for local councils to make those sort of decisions, due to the second factor identified above, namely the drive to increased regulation and standardisation. It is increasingly the case that only in the non-statutory services is there any real scope for differentiation.
What would local government look like if we took all the statutory services away, and ran them under some sort of more central control (which is basically the model of the NHS)?
Firstly, rather than reducing the number of county councils, there could actually be a case for increasing the number and making them more local and accountable.
Secondly, rather than funding them centrally, the remaining services could be funded entirely out of local taxation (either council tax, or Plaid's preferred alternative of a local income tax). Councils would be in a position to raise and spend their income without external control on a range of optional services which local residents could choose either to expand or contract, and be clear of the tax implications in so doing.
It would of course represent a huge degree of centralisation of the management of services like education and social services, but it would be more honest than the creeping centralisation which comes through regulation, defining standards, target-setting, and hypothecated grants.
One of the hardest lessons that I learned when I first moved into a management role is that delegation includes delegating the right to take different decisions and to make mistakes. As far as local government is concerned, I think that we need either to delegate real authority to councils, or else decide that the services are too important to delegate, and manage them properly from the centre. Delegation to people whose hands central government then tie is no delegation at all.
It's a pretty radical suggestion, of course. But we really do need to decide what local councils are for – before we start thinking about how many we need.