Engagement with local and regional authorities

¶14.4. The Local Government Association represents almost all English local councils and Welsh local authorities, which numbered 333 and 22 respectively during the pandemic.⁴⁴ INQ000215538_0011 paras 36-40; INQ000292585_0004 para 17 Wales also has its own Welsh Local Government Association.⁵⁵ INQ000273741_0006 para 11 There are 32 local authorities in Scotland, represented by the Convention of Scottish Local Authorities. In Northern Ireland, there are 11 district councils, all of which are represented by the Northern Ireland Local Government Association.⁶⁶ INQ000286845_0003 para 10

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¶14.5. In England, there are also directly elected mayors of combined authorities, as well as the directly elected Mayor of London.⁷⁷ INQ000573856; INQ000221436_0011 para 48 The nine mayors in place during the pandemic met regularly.⁸⁸ Sadiq Khan 27 November 2023 61/8-19 There are no mayoral equivalents in the devolved nations.

Central government engagement with local government and mayors

¶14.6. Central government decision-making – such as in relation to local lockdowns, the tier system adopted in England and the levels system adopted in Scotland – directly affected local government.

¶14.7. Proper engagement and communication with local government was essential to ensure that central government decision-making was adequately informed by local expertise, and that local government was given sufficient notice of central government decisions to allow appropriate arrangements to be made in advance. Local government should be involved in discussions about decisions that it will be responsible for delivering – or which will impact upon its resources – as soon as those decisions are contemplated.

¶14.8. The UK government did engage with local government and the nine mayors to an extent in respect of its broader decision-making. Mr Johnson had some direct engagement with local leaders, including through roundtable meetings and telephone calls.⁹⁹ INQ000255836_0061, 0101, 195 paras 241, 375, 670; INQ000215538_0032-0034 para 104; INQ000221436_0049 para 227; INQ000216991_0020 para 67 Matt Hancock MP, Secretary of State for Health and Social Care from July 2018 to June 2021, also met with the nine mayors, where their role in informing central government decision-making and the need for regular meetings were discussed.¹⁰¹⁰ INQ000216991_0020 para 70a

¶14.9. However, the Inquiry heard evidence from local leaders that the UK government failed to engage adequately with them. For example, Andy Burnham, Mayor of Greater Manchester from May 2017, explained that the UK government made a decision to base a large testing location at Manchester Airport without consulting local leaders as to options that might have been more suitable and centrally located.¹¹¹¹ Andy Burnham 27 November 2023 116/16-117/2 Sadiq Khan (later Sir Sadiq Khan), Mayor of London from May 2016, told the Inquiry that, throughout the pandemic, there was an absence of UK government engagement with regional and local leaders in relation to its decision-making.¹²¹² INQ000221436_0076-0077 paras 350, 355 He explained that the offers he and others made to inform and support central decision-making were "consistently ignored".¹³¹³ INQ000221436_0077 para 355 In his view, this led to poor decision‑making.¹⁴¹⁴ Sadiq Khan 27 November 2023 64/7-19

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¶14.10. Mr Khan's initial requests to attend COBR meetings in early 2020 were rebuffed on the basis that it would not be appropriate to invite any particular mayor to the exclusion of others.¹⁵¹⁵ Boris Johnson 6 December 2023 160/20-161/1; INQ000214135; Edward Udny-Lister 7 November 2023 154/12-156/9, 158/16-20; INQ000221436_0016-0019 paras 69, 72, 78, 82 However, he subsequently attended a number of COBR meetings concerning the pandemic response, from 16 March 2020.¹⁶¹⁶ INQ000221436_0019 para 82 Edward Udny- Lister, Lord Udny-Lister (Chief Strategic Adviser to the Prime Minister from July 2019 to November 2020 and Chief of Staff to the Prime Minister from November 2020 to February 2021), told the Inquiry that – with hindsight – he should have perhaps authorised Mr Khan's attendance at COBR earlier, despite his worry about treating London differently.¹⁷¹⁷ Edward Udny-Lister 7 November 2023 159/18-160/8 The other mayors were not invited to attend COBR, with the exception of a meeting on 12 October 2020 attended by Steve Rotheram (Mayor of the Liverpool City Region from May 2017), where local Covid-19 alert levels for areas including Liverpool were discussed.¹⁸¹⁸ INQ000255836_0141-0142, 0195 paras 507, 672; INQ000216991_0022 para 73; INQ000249818_0004-0005 para 12

¶14.11. Mr Khan explained that "little or no notice" was given to local leaders in advance of UK government decisions.¹⁹¹⁹ INQ000221436_0078 para 357 He stated:

" There simply was not enough information given to local leaders in enough time – whether around the implementation of local lockdowns, the local data around test and trace or the roll out of testing."²⁰²⁰ INQ000221436_0025 para 109

¶14.12. Mr Burnham described the approach of the UK government to decision-making as "insufficiently consultative" and explained that its engagement was "largely unstructured, sporadic in nature and intense when particular issues arose".²¹²¹ INQ000216991_0008-0009, 0012 paras 23, 27, 41 Mr Rotheram also explained that it felt as though mayors were having to:

" battle with government for changes or concessions rather than being provided with a seat at the table to utilise local knowledge to help shape the response".²²²² INQ000249818_0014 para 46

¶14.13. Mr Rotheram said that, all too often, he and other local leaders would find out information relevant to their communities via the media rather than from the UK government.²³²³ INQ000249818_0013-0014 para 45 Mr Burnham explained that, had local leaders been involved earlier in decision-making discussions, they would have been in a position to tell their own systems how to get ready to implement the decisions.²⁴²⁴ Andy Burnham 27 November 2023 123/21-124/1

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¶14.14. The Local Government Association expressed the view that:

" there was an initial failure by central government to engage with local government on key issues and decisions, and so to benefit from councils understanding of their communities".²⁵²⁵ INQ000215538_0008 para 25

¶This impacted the effectiveness of the design of schemes for shielding and contact tracing.²⁶²⁶ INQ000215538_0009 para 26 The Local Government Association explained that it would have been helpful for local government to have been consulted concerning interventions so that it could plan for the implementation of these interventions at a local level.²⁷²⁷ INQ000215538_0010 para 31 It was of the view that UK government decisions were poorer as a result of this lack of local input.²⁸²⁸ INQ000215538_0010 para 32 However, it considered that, over time, engagement did improve through the regular convening of meetings by the Department for Levelling Up, Housing and Communities.²⁹²⁹ INQ000215538_0009 para 29

¶14.15. Mr Johnson conceded that he did:

" not feel that we managed to have as good communication with the regional and local authorities as I would have liked: much of it was impromptu and responded to local crises rather than getting on the front foot".³⁰³⁰ INQ000255836_0196-0197 para 676

¶14.16. While there was extensive engagement between the Welsh Government and local government in Wales throughout the pandemic, Dame Shan Morgan, Permanent Secretary to the Welsh Government from February 2017 to October 2021, agreed that more could have been done.³¹³¹ Shan Morgan 4 March 2024 198/8-17; see also INQ000273741_0015 para 36 In her view:

" [I]t would probably have been a very good idea had I invited the chief exec of the WLGA [Welsh Local Government Association] to become a member of ExCovid [a Welsh Government committee], or at least come from time to time when there was an area of particular interest."³²³² Shan Morgan 4 March 2024 198/8-17; Chris Llewelyn 6 March 2024 117/12-118/15. 'ExCovid' – the Executive Committee on Covid – was a strategic coordination and information-sharing group of senior officials in Wales.

¶14.17. Dr Chris Llewelyn, Chief Executive of the Welsh Local Government Association from January 2019, explained that there was open communication with local government, but that discussions around the operational detail and delivery of decisions were less inclusive.³³³³ Chris Llewelyn 6 March 2024 123/16-125/9 Issues relating to early engagement with local government were raised as early as 21 March 2020.³⁴³⁴ INQ000089875_0001-0002; Chris Llewelyn 6 March 2024 117/2-11 However, Dr Llewelyn also noted that the:

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" level of consultation and engagement at the political level between Welsh Ministers and leaders was unprecedented … Welsh Ministers were accessible and sought to engage collectively with leaders and, where necessary, bilaterally to consider particular local matters of concern."³⁵³⁵ INQ000273741_0036 para 111

¶The Welsh Local Government Association's submission to the exercise on lessons learned, organised by Dame Shan Morgan, also reiterated that it:

" proved very challenging for local authorities to plan for the operational implementation of announcements … with limited notice".³⁶³⁶ INQ000089872_0001-0002

¶14.18. Local government in Northern Ireland does not have the same statutory duties, responsibilities and powers as its counterparts have in other areas of the UK in relation to emergency preparedness.³⁷³⁷ INQ000286845_0004 para 15 Its role was therefore limited to that of a consultee in respect of the interpretation and practicality of enforcement of the relevant regulations.³⁸³⁸ INQ000286845_0016 paras 45-46 As such, the necessity and extent of engagement between central and local government was more limited in Northern Ireland than in the other nations of the UK. Nevertheless, mechanisms for communication and sharing information were identified early in the pandemic and were maintained throughout.³⁹³⁹ INQ000286845_0009 paras 37-44 The Northern Ireland Local Government Association told the Inquiry that there:

" were no disagreements between local government and NI government over the particular NPIs [non-pharmaceutical interventions] imposed, extended or removed … The key consideration for local government was that there were mechanisms in place with NI government to seek clarity on significant decisions."⁴⁰⁴⁰ INQ000286845_0017 paras 49-50

¶14.19. There was a mixed picture of the extent and effectiveness of the Scottish Government's engagement with local government. John Swinney MSP (Deputy First Minister of Scotland from November 2014 to March 2023 and Cabinet Secretary for Covid Recovery from May 2021 to March 2023) maintained that there was "good and effective communication and partnership working between the Scottish Government and local authorities".⁴¹⁴¹ INQ000287771_0088 para 178 The Convention of Scottish Local Authorities also considered that it was, for the most part:

" adequately consulted and engaged in relevant decision making prior to the public announcement of decisions taken to amend, extend or end the use of [interventions]".⁴²⁴² INQ000273700_0008 para 3.12

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¶However, many individual local authorities in Scotland disagreed with Mr Swinney's assessment. For example:

Aberdeenshire Council and North Lanarkshire Council said that they were not involved in decisions to impose local restrictions.⁴³⁴³ INQ000183789_0002 para 4c; INQ000183808_0002 para 4c
West Dunbartonshire Council said that "there was little opportunity to influence the decision making".⁴⁴⁴⁴ INQ000183817_0004
Angus Council said that "it was difficult to see where local need was considered".⁴⁵⁴⁵ INQ000183790_0004

¶After the early months of the pandemic, the Scottish Government had more opportunity to consult with local authorities before making decisions to impose local restrictions and more time to communicate those decisions with sufficient notice to local authorities, but it regularly failed to do so.

¶14.20. The UK, Scottish and Welsh governments should have done more to engage and communicate effectively with local government at an earlier stage and on a regular basis during the pandemic.

A need for a formal engagement structure

¶14.21. After the early months of the pandemic, the four governments had more opportunity to consult with local authorities before making decisions to impose local restrictions and more time to communicate those decisions with sufficient notice to local authorities. There was no formalised structure in place for this specific purpose.

¶14.22. Mr Burnham told the Inquiry that, in his view, there:

" should be a recognised role for Combined Authorities in the leadership, setting of strategy and implementation of measures in both pandemics and other national-scale emergencies".⁴⁶⁴⁶ INQ000216991_0042-0043 para 143

¶14.23. Michael Gove MP (later Lord Gove), Chancellor of the Duchy of Lancaster from July 2019 to September 2021 and Minister for the Cabinet Office from February 2020 to September 2021, was of the opinion that, in future, central government will need "an emergency structure … to engage with local leaders" and that the UK government must "develop more formal mechanisms to work with regional mayors".⁴⁷⁴⁷ INQ000259848_0079, 0083-0084 paras 175, 188

¶14.24. The UK government and devolved administrations should each have access to a structure that they can use as a forum, in the course of a pandemic, for local government to be given adequate notice of central government decisions, to enable it to support the effective implementation of those decisions and to be consulted in relation to measures directly affecting their areas. The structure should be convened regularly from the outset of any future pandemic in each of the four nations, to provide a forum where central government can engage regularly with local leaders.

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¶14.25. Some forums between each of the central governments and local authorities exist already – for example, local resilience forums and partnerships in the arena of civil emergency planning and resilience. Where possible, steps should be taken to ensure that they are properly utilised and that they promote more extensive consultation. For example, local authorities in Scotland are invited to participate in the Scottish Government Resilience Room.⁴⁸⁴⁸ INQ000287771 _0090 para 183

¶14.26. In Wales, the Partnership Council for Wales brings together Welsh Government ministers with local authorities.⁴⁹⁴⁹ INQ000273741_0021-0022 paras 51, 53 Both Dr Llewelyn and Reg Kilpatrick (Director in the Welsh Government with responsibility for civil contingencies from 2013 and Director General for Covid Coordination from September 2020) agreed that the meetings of the Partnership Council that took place over the pandemic provided an opportunity for local government to engage with Welsh ministers on matters related to the Covid-19 response.⁵⁰⁵⁰ INQ000292585_0019 para 69; INQ000273741_0022 para 52 The Inquiry encourages its use in Wales in any future pandemic to facilitate engagement and communication between the Welsh Government and local government in Wales. It also notes that other forums, such as those convened by the Welsh Local Government Association, played a vital role during the pandemic.⁵¹⁵¹ INQ000273741_0026 paras 74-75

¶14.27. The Partnership Panel for Northern Ireland was established under the Local Government Act (Northern Ireland) 2014. As such, it pre-dated the Covid-19 pandemic and provided a formal mechanism for political and strategic liaison between ministers of the Northern Ireland Executive and elected representatives from local government on policy matters of mutual interest and concern. The Panel met on four occasions throughout the pandemic, and matters relating to Covid-19 were discussed.⁵²⁵² INQ000286845_0010 para 38 The Inquiry recognises that there are differences in the responsibilities of local government in Northern Ireland as compared with local government responsibilities in England, Scotland and Wales – for instance, local government in Northern Ireland does not have responsibilities in relation to public health. Nevertheless, the Inquiry encourages the use of the Panel in any future pandemic to facilitate engagement and communication between the Northern Ireland Executive and local government in Northern Ireland.

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