There’s been a slightly obscure consultation process going on in the Labour party about what is the best structure for policy development.
Currently, the process is a well-intentioned, but complicated and dysfunctional ‘deliberative’ process involving 194 National Policy Forum (NPF) representatives, six policy commissions, a Joint Policy Committee made up of the shadow cabinet, the NPF and the NEC, and a three year cycle culminating in a ‘warwick-style’ get together to thrash out a policy agreement.
Relatively few people in the labour movement understand it, and probably even fewer trust it to deliver ‘effective policy’ (even this term is contestable.
Ultimately, the problem is that structure has been developed as a way of disguising power asymmetry in the party. I have responded to the consultation with this at the forefront of my mind, and proposed the abolition of current process in favour of one which acknowledges that power is (and should) always contested and contestable, and which puts accountability of senior party people at the heart of the process, rather than allowing them to use a complex ‘deliberative’ structure as shield.
This may come as a surprise to those who consider me, with some justification, a bureaucrat ‘par excellence’, but I think there are limits to the effectiveness of the kind of deliberative/semi-democratic centralism structures now in place, and Labour – if it really is to engage more members and non-members – needs to embrace the ‘messy’, but creative dynamics of contested power, scrutiny of and challenge to authority. In the end, I am more Steven Lukes than Harry Barnes.
Here are my answers to the main consultation questions.
What do we expect from our policy making process? What constitutes a successful policy making system for our Party?
A successful policy making process is one ne which creates a policy in support of the party’s key values.
That may seem obvious, but it’s important. The consultation document is wrong when it says (p8) that
The right result will be a system which supports us in developing a policy platform which will once again command the trust of the British people.
Such an objective for the policy-making process makes the party too subject to triangulation, and a set of policies thereby imposed upon us, ultimately, by a dominant media narrative.
It is perfectly acceptable as a process for the party to decide what its values (or its mission statement and overall objectives might be a better way to frame it) and then develop a trust-commanding position/narrative from there.
How do we best involve our members in policy making?
We need to abandon completely the current ‘deliberative’ process, and replace it with one which actually works. I will cover both why the current process does not work, and what we can replace it with.
The current National Policy Forum-based process was conceived and developed with the best of intentions, as a way of involving as many people as possible in policy development, but the time has come to accept that it simply doesn’t work.
The consultation document (p.8) suggests that
Partnership in Power [the name of the overall process] has in most people’s eyes been considered a success.
I am afraid this is either wishful thinking, or else the use of the term “most people” to mean people within the NPF and commissions. Most party members and affiiliate members are either unaware of the process or think it does not work.
Whatever the good intentions behind the PiP, it is simply not possible to develop an effective deliberative system to include so many people and so many constituent organisations. All that is created is a series of asymmetric power structures where those in position of party authority (necessarily) dictate the policy setting agenda to those not in authority (in local CLPs etc). Those without authorityy then lose faith in the process because they see no meangingful result of their input.
The most important point is that the current process lacks accountability. There is no-one within the process to whom ordinary members can go and ask about what happened to their or their branch’s policy submission, whether it was accepted, why it was rejected, and what’s going to happen now.
The lack of accountability is built into the structure by the way the NPF farms detailed policy development out to commissions, and the commissions report back to the NPF sructure to those who have submitted proposals, for example.
We need, then to build accountability back into the process.
The best way to do this is to abolish the cumbersome structures of the NPF/JPC etc., and invest both authority and accountability in the place where most members of the party see it invested anyway, and where they have a real and meaningful point of contact.
This is the local MP, or the local PPC where there is no Labour MP (see also below re: MEPs)
We need to establish a process – indeed culture - whereby branches/CLPs/affiliate groups, and perhaps also individual members, can make legitimate policy demands of their MP/PPC, asking them to promote their policy proposals and ideas.
The parameters for this process should not be set out from ‘on high’ as they are at the moment (with the six pre-defined policy areas), and the power to raise policy ideas/concerns should fit squarely with local parties. It should then be the job of the MP/PPC to feed these policy ideas directly towards the shadow cabinet/NEC (the ‘ex-JPC’), and to report back directly to local parties on what steps, with what level of success, they have taken.
This whole process should be part of a wider configuration of the MP/prospective MP role, whereby s/he should become answerable to the local party. Local MPs should start to see themselves as akin to the CEO of a charity, in which the members elect Trustees (in the form of CLP officers) to oversee theMP/CEO, and the MP/CEO presents, say, an annual business plan to the ‘trustees’ for approval of business expeenditure) and regular monitoring. These proposals are set out in more detail here and here, including proposals for changed financial arrangements for constituencies and constuency parties which will promote membership growth.
Where policy matters are expressed in local terms by local parties, it is up to the MP to extrapolate as need be to develop wider policy recommednations for submission to the Cabinet/NEC, in conjunction with other MPs as s/he feels necessary/useful. This is, of course, what happens when casework of councillors ends up becoming part of a wider polict debate in a Labour group, but on a larger scale.
To this end, MPs can of course avail themselves of existing structures like the regional MP groups should they feel this will be helpful in putting forward the policy recommendations of their local party (the group may need to be open up to PPCs).
This will create a much more dynamic structure for the policy making process, with accountability back to members built in as part of an MP’s performance bu which s/he is judged when it comes around to selection trigger points etc..
Of course unions will need their own route to the shadow cabinet/NEC.
What can we do to support our members and local parties in debating policy?
See above – make the MP the person who takes forward policy and reports back on their efforts to get local party policty adopted (sometimes it will not be, and this is acceptable if due explanation is given), and member involvement will follow.
How do we best do justice to the involvement of activists in policy making? How do we best communicate the work of PiP and feedback to those who get involved?
Abolish the PiP process as it exists at the moment, and develop feedback via MPs/PPCs. See above
How can we reach out to and involve the public? How do we ensure the issues raised by members of the public with Labour canvassers are reflected in our policy making process?
If MPs become the main accountable person, and the local party becomes enlivened/empowered through this new ‘Charity/CEO’ dynamic that I propose, it becomes a lot easier to engage members of the public in debate if those members of the public know they will get a meaningful, locally relevant answer back.
How can we best engage with external organisations, businesses and other groups on a local and national level?
As above, in respect of organisations and business at a local level.
Is the current three year cycle of policy development correct? What do you think of our current system of circulating policy documents for amendment – is it the best way of engaging people or is there a better method? Is there an alternative to the current process?
We should abandon the formality of the three year cycle.
It doesn’t actually matter that much whether there is ever a formal point at which there is a complete and agreed policy. We should accept that the process is dynamic, and our manifesto should reflect that – being the best statement of our policy position at that point in time.
How do we decide which policy issues to focus on? How do we deal with current and urgent issues in our policy making process? How do we ensure that the system is flexible enough to allow for speedy decisions where needed?
As above, the ‘we’ should be local party units, unconstrained by parameters set from on high. With the new process in place, policy ideas going forward from local parties via MPs/PPCs will start to reflect the main themes set out in local constituency ‘business plans’ set out by MPs for approval/adaptation/negotiation with and by CLPs.
Is the National Policy Forum the correct focal point for our policy discussions? What do you think of the NPF? How could it be improved? What should be the role of NPF representatives?
No, it should be abolished because it has no accountability back to members and local parties, and is therefore not trusted by them. See above.
How aware are you of the policy commissions and their role? How successful are they – could they be improved?
They may be successful in their own terms, but they should be abolished. See above.
Does the Joint Policy Committee work effectively? What should its role be?
This can remain (with the NPF part abolished) as the senior arbiter group on what is and isn’t current party policy, but this should be a dynamic process into which MPs and MP groupings (with PPCs) feed directly in on behalf of their lcoal parties (and report back from it directly).
What should be Annual Conference’s role in deciding policy? What is the best way for Conference to debate policy and how can we ensure debates are topical and relevant?
I am happy to accept that Annual Conference is now a media showcase, and not a decision-making forum.
The policy buck should stop with the cabinet, as long as the accountability measures set out above are built into the process. The focus should be on ensuring accountability and allowing mechansism for power and authority to be contested, not on structures designed to hide who has the power and authority.
How do we support policy discussion at regional and local level?
See above, but abandon regional policy discussions which currently simply add another lay of unaccountability.
Regional meetings should be about borad discussion, not decision making simply intended to feed into the NPF morass.
They should also provide an opportunity for the regional MP groupings to be held to account over how effectively they have collaborated over their different local parties’ plans/ideas.
With limited resources now and in the future a reality, what should be our priorities?
Abandon the cost of the NPF, strip out the layers as identified, and get on with the new accountable, dynamic process at local level.
Do you have any other thoughts, comments or ideas not covered in the above?
Wherever I have said MP/PPC, please also read MEP. Their larger geographic remit makes it slightly trickier to operate as set out above, but it is not difficult to integrate them into the new dynamic culture set out above.
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