Creating Strong, Safe and Prosperous Communities: Statutory Guidance

Creating Strong, Safe and Prosperous Communities
Statutory Guidance
www.communities.gov.uk
community, opportunity, prosperity
Creating Strong, Safe and Prosperous Communities
Statutory Guidance
July 2008
HM Government
Communities and Local Government
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Contents 3
Contents
Schedule for introduction of legislation 5
Foreword 6
Introduction 7
Scope of the Guidance 7
Contents 9
Glossary of legislative terms 10
Section 1: Creating strong, safe and prosperous communities 11

Delivering the Community Leadership vision 12
Section 2: Governance and engagement 15

Local Strategic Partnerships (LSP) 15
The role of the LSP 15
LSP governance and accountability between partners and to the local area 17
Community Empowerment – the duty to involve 19
What does the new duty to involve require? 20
Applying the duty 23
Section 3: Establishing a vision for the area 26

Sustainable Community Strategies (SCS) 26
What do we mean by a SCS? 27
How do SCS relate to other plans? 28
How do SCS work in multi-tier areas? 32
Reviewing or refreshing SCS 32
The duty to produce a Joint Strategic Needs Assessment 32
Section 4: Agreeing priorities for an area 34

Local Area Agreements (LAA) 34
Preparing a LAA 34
The negotiation 36
Submitting the draft LAA to the Secretary of State 37
The approval and designation process and the role of the Secretary of State 38
The distinction between designated and non-designated targets 39
Revising an LAA 39
The duty to publish information about a LAA 41
Section 5: Agreeing the priority outcomes for an area – the role of local partners 42
Partners and their role in shaping their locality 42
Statutory ‘partner authorities’ and the duty to cooperate to agree targets 43
What constitutes cooperation? 43
Other partners – consultation and cooperation 44
Which targets ‘relate’ to each partner? 45
How will consultation and cooperation be monitored? 45
Section 6: Delivering priorities for the area 46

The overarching role of the (LSP) 46
The practical implications of ‘having regard’ to local improvement targets in the
exercise of functions 46
Partners who have voluntarily agreed to help deliver a local improvement target 48
Securing positive outcomes and best value through commissioning 48
The commissioning role of local authorities 49
Putting people and places at the heart of commissioning 49
A mixed economy of service delivery 50
Fair and open competition 50
Incentivising providers and sustainable funding 51
Delivering the right outcomes over time 52
Annex 1: Sustainable Communities Act 2007 Statutory Guidance 53

The context 53
Inclusion of persons from under-represented groups 54
Definitions 55
Schedule for introduction of legislation 5
Schedule for introduction of legislation

Who it applies to Date of Relevant sections
introduction of Guidance
Statutory Local Area All Responsible Early 2008 Sections 4, 5 and 6
Agreements (and authorities1 and
associated Duties, statutory Partner
namely Authorities2
(i) duty to cooperate in
determining LAA targets
(ii) duty to have regard to
targets
Deregulation of the Best All Best Value 1 April 2008 Section 6
Value Regime authorities3
Duty to Involve local All Best Value 1 April 2009 Section 2
representatives Authorities excluding
police authorities
123
See section 103 of the Local Government and Public Involvement in Health Act 2007. Paragraph 4.3 also lists which authorities are
1
‘responsible authorities’
See section 104 of the Local Government and Public involvement in Health Act 2007. Paragraph 5.4 also list which bodies are
2
‘partner authorities’
Section 1 of the Local Government Act 1999
3
6 Creating Strong, Safe and Prosperous Communities: Statutory Guidance
Foreword by Rt Hon Hazel Blears MP,

Secretary of State for Communities and
Local Government
2008 is a watershed year for Britain’s local democracy.
It is the year in which the mature relationship between central and local government,
debated for so long, and promised in the White Paper Strong and Prosperous
Communities, becomes reality.
It means greater discretion for councils to put the governing back into local government:
not just administering services, but thinking strategically about what local people want
and need.
At the end of October 2007, the Local Government Public Involvement in Health Bill gained
Royal Assent. This Act introduces a new settlement between central and local government,
and between local government, its partners and its citizens.
This statutory guidance sets out how many of the key measures in the Act will enable
local authorities to engage their citizens, lead their communities, and find new and more
effective ways to deliver high quality services with their partners.
The changes offer unprecedented opportunities for local leaders to set out their vision for
their communities, while empowering local people to help deliver that vision.
The LAA framework explained in the guidance is critical as the negotiation has become
just the place where local councils and their partners decide how they are going to improve
the quality of local life but is the only place where national and local government agree a
shared set of priorities.
Also explained is how local authorities and partners will cooperate to agree targets for
improvement on the local priorities that matter most.
Crucially the guidance also covers how authorities can use the new duty to involve to
ensure that citizens can play an active role in shaping the future of the place where they live
– for example through setting up citizens panels, participatory budgeting, or transferring
under-used buildings to community groups.
I am confident that local authorities can rise to the challenge, deliver for the people they
serve, and make every community proud.
Introduction 7
Introduction
Scope of the Guidance

The Local Government and Public Involvement in Health Act received Royal Assent on
October 30th 2007. This guidance explains the provisions of Part 5, Chapter 1 and Part
7 of the Act, which relate to the new statutory framework for Local Area Agreements
(LAA), Joint Strategic Needs Assessments and the new, simplified best value regime, which
includes a new duty to involve. It also provides updated guidance on the preparation of
sustainable community strategies, under section 4 of the Local Government Act 2000.
The guidance only applies to England.
Paragraphs 2.12 to 2.27 contain statutory guidance provided under section 3A and of
Local Government 1999 (as provided by sections 138 of the Local Government and Public
Involvement in Health Act 2007) on to how to involve representatives of local persons.
Paragraphs 2.2 to 2.9 contains non-statutory guidance (except as it relates to the

preparation of a draft LAA). They replace the previous non-statutory guidance ‘Local
Strategic Partnerships’ DETR 2001.
Paragraphs 3.1 to 3.26 contain statutory guidance under section 4 of the Local
Government Act 2000 in relation to the preparation or modification of Sustainable
Community Strategies. Paragraphs 3.1 to 3.30 replace that issued previously under section
4 of the Local Government Act 2000 ie ‘Preparing Community Strategies: Government
Guidance to Local Authorities’.
Paragraphs 3.27 to 3.32 contain statutory guidance provided under section 116 of the
Local Government and Public Involvement in Health Act in relation to the new requirement
to produce a Joint Strategic Needs Assessment for health and social care.
Paragraphs 4.3 to 4.30, 5.4 to 5.6 and 5.10 to 5.11 and 6.2 (except for the box on data
sharing) contain statutory guidance provided under sections 106 and 111 of the Local
Government and Public Involvement in Health Act 2007 in relation to the preparation of
LAAs.
Paragraphs 6.5 to 6.17 contain statutory guidance provided under section 3 and of Local
Government 1999 (as amended by sections 137 of the Local Government and Public
Involvement in Health Act 2007) in relation to how commissioning and the duty of best
value can be addressed. Paragraphs 6.5 to 6.17 replace that issued in ODPM Circulars
03/2003, 07/2003, 10/2003, 01/2004, 02/2004, 09/2004 and 05/2006 except:
• paragraphs 28 to 31 and Annex C (Handling of Workforce Matters in Contracting) and

Annex D (Code of Practice on Workforce Matters in Local Authority Service Contracts)
of ODPM Circular 03/2003
• paragraphs 20 to 23 and Annex B (Handling of Workforce Matters in Contracting) and
Annex C (Code of Practice on Workforce Matters in Local Authority Service Contracts)
• Annex B (Handling of Workforce Matters in Contracting), Annex C (Code of Practice
on Workforce Matters in Local Authority Service Contracts) and Annex D (Valuing the
workforce) of ODPM Circular 10/2003
• paragraphs 24 to 28 and Annex A (Handling of Workforce Matters in Contracting) and
Annex B (Code of Practice on Workforce Matters in Local Authority Service Contracts)
• paragraphs 55 to 58 and Annex D (Handling of Workforce Matters in Contracting) and
Annex E (Code of Practice on Workforce Matters in Local Authority Service Contracts)
of ODPM Circular 09/2004.
This statutory guidance on the Handling of Workforce Matters in Contracting the Code
of Practice on Workforce Matters in Local Authority Service Contracts will be replaced by
separate guidance on workforce matters to be published later.
Statutory guidance for the Sustainable Communities Act 2007 is published as an annex
to this document. The Act introduces a new procedure for local authorities to make
proposals to the Secretary of State that they consider would contribute to promoting the
sustainability of their local communities.
Introduction 9
Contents
Section 1 of the guidance provides an introduction to the concept of a new settlement
between central government, local government and their partners and citizens and
community leadership, providing a context for the later sections of the document.
Section 2 addresses issues of governance and engagement, setting out the role of
the Local Strategic Partnership and the leadership role of local authorities within them.
The section also deals with the Duty to Involve on best value authorities4 and how local
communities are to be engaged and empowered in shaping the future of their area.
Section 3 provides guidance on establishing a vision for the area. The central role of the
Sustainable Community Strategy in encapsulating the ‘story of place’ is explained, together
with how this Strategy should relate to other local plans and strategies.
Section 4 covers the overall establishing of priorities for an area through the Local
Area Agreement (including the formal submission, approval, designation and revision
processes).
Section 5 also addresses the establishing of priorities from the perspective of partners,
crucially it explains what is expected in terms of co-operation to determine targets.
Section 6 covers the delivery of outcomes for an area. It explains how partner
authorities are required to have regard to targets they have agreed in the Local Area
Agreements, along with how commissioning and the duty of best value should be
addressed in the future.
Except Police Authorities – see para 2.12

4
Glossary of legislative terms used in the guidance

• Responsible Local Authority5 – is a local authority that has a duty to prepare a LAA
• Partner Authority – is a person or body that must be consulted by a responsible
authority when it prepares its LAA, must cooperate with the responsible authority
to determine LAA targets and must have regard to LAA targets it has agreed
• Local Improvement Targets – is the legal term that refers to all targets in the LAA
• Designated targets – are Local Improvement Targets that have been selected by
the Secretary of State as being of national importance and are subject to different
amending and reporting arrangements
• Revision Proposal – the process that must be followed in order to amend or
remove an existing designated target. A revision proposal may also add new local
improvement targets.
• Memorandum relating to LAA – the means by which the responsible authorities are
required to provide public information about LAA targets.
• Best value authorities – are those authorities listed in section 1 of the Local
Government Act 1999 that are subject to the duty of best value.
• Representatives of local persons – ”refers to a mix of ”local persons”, ie a balanced
selection of the individuals, groups or organisations the authority considers likely
to be affected by, or have an interest in, a particular authority function and who the
authority is under a duty to involve where they think it appropriate to do so.
Any reference in this document to ‘the Act’ is a reference to the Local Government and
Public Involvement in Health Act 2007.
Responsible authorities are county councils, unitary district councils, London boroughs, the Council for the Isles of Scilly and the
5
Common Council of the City of London

Section 1 Creating strong, safe and prosperous communities 11
Section 1
Creating strong, safe and prosperous
communities
1.1 The Local Government White Paper6 declared the Government’s ambition to create
strong, safe and prosperous communities throughout England through a new
settlement between central government, local government and citizens. The key
components of the new settlement are:
• a recognition that every place is different, with distinctive strengths and needs
• a new approach by central government that creates space for distinctive local
priorities and local innovation
• a commitment to widen and deepen the involvement of local communities
in shaping their own future
• councils taking on the role of democratically elected strategic leaders and
convenors of local partnerships in the wider governance of their localities
• a focus on coordinated action tailored to the distinctive needs and
opportunities of each place and its people
1.2 To achieve positive outcomes for people and places there needs to be a
broadening of local government’s remit – responding to long-term challenges such
as public health, climate change and demographic fluctuations, ensuring continued
economic prosperity and environmental sustainability, and building strong societies
in which people want to live and work. This means:
• a responsibility on councils to provide strategic and political leadership and

involve the full range of stakeholders in developing and delivering a shared vision
for their area
• all key local partners working together to address the risks and challenges
facing the areas, using their combined resources to best effect
• involving and empowering communities, acknowledging that services
will be improved and communities strengthened only if local people are
effectively engaged and empowered, as individuals and through organisations
representing them
• through elected local government, wider and stronger local accountability
for public services and local outcomes, rebuilding trust between citizen and state
Communities and Local Government (2006) Strong and Prosperous Communities: Local Government White Paper
6
1.3 Central government recognises that a tailored approach to improvement needs to

be developed for each area, focussed on outcomes and appropriate to its needs.
Central to this is the need to bring together national standards and priorities set
by Government with local priorities informed by the vision developed by the local
authorities and its partners. This new approach acknowledges the progress made
by councils in managing their own performance, and the role for inspection and
intervention based on an assessment of risk.
1.4 Central Government and the Local Government Association have established a
concordat to govern the relations between central and local government.7 The
concordat provides an unprecedented agreement on the rights and responsibilities
of local government, including its responsibilities to provide effective leadership of
the local area and to empower local communities. The move towards more local
freedoms is intended to be profound and enduring, and represents a new settlement
as part of wider reforms of the Governance of Britain.8 It aims to put the ‘governing’
back into ‘local government’ and to empower citizens to make a real difference in
their localities.
Delivering the Community Leadership vision

1.5 Everyone has a role to play in creating strong, safe and prosperous communities. In
every area, councils and local public service partners are already working together
and in partnership with local businesses, third sector organisations and local people
to improve local well-being. To cement this approach, a new local performance
framework has been developed, which is built around a transformed set of
relationships between local authorities and their partner agencies, Government
Offices in the regions and Central Government Departments. This guidance explains
how various pieces of legislation,9 relating to the performance framework, fit
together – with the aim of making a real difference to people and places.
• The starting point for delivering better outcomes is for local partners, in the
Local Strategic Partnership (LSP), to create a shared vision and shared sense
of priorities for a place. The vision will be set out in a Sustainable Community
Strategy (SCS),10 which will describe how people who live and work there want
it to change over time.
• The duty to involve will ensure that local people have greater opportunities to
influence decision-making and get involved.
http://www.communities.gov.uk/documents/localgovernment/pdf/601000.pdf
7
Ministry of Justice (2007) Governance of Britain

8
Part 1 of the Local Government Act 1999; Part 1 of the Local Government Act 2000; Part 5, Chapter 1 and Part 7 of the Local
9
Government and Public Involvement in Health Act 2007

10
Section 4 of the Local Government Act 2000 was amended by section 7 of the Sustainable Communities Act 2007 so that
Community Strategies are now called Sustainable Community Strategies.
Section 1 Creating strong, safe and prosperous communities 13
• New Local Area Agreements (LAAs) form the heart of the new local
performance framework. They help deliver the ambitions for the place and
its people, set out in the Sustainable Community Strategy; they set out the
‘deal’ between central government and local authorities and their partners to
improve services and the quality of life in a place. LAAs will be the only vehicles
for agreeing targets between local government and their delivery partners
and central Government (except for the 16 statutory education and early years
targets).
• The duty to cooperate to agree targets in LAAs provides a key lever to bring
about a more robust approach to local partnership working.
• Partners can then work together to deliver positive outcomes, particularly
through commissioning, to ensure best value is secured for citizens and
communities.
1.6 The diagram below illustrates how the performance framework is designed to
function as a whole.
Figure 1: Summary of relationship between Sustainable Community Strategy

and the remaining statutory local and regional plans
Performance Framework
Improvement Area Governance
Local Strategic
Support Partnership &
National Improvement Thematic Partnership
& Efficiency Strategy
Commissioning
Cycle
Improve Vision
Assess of the Area
Monitoring & Sustainable
Needs
Review Community Strategy
Comprehensive Duty to
Area Assessment
Inform
Consult
Involve
Review
Priorities/
options
Secure
outcomes &
Public Reporting Best value
National Pls/ Delivery Plan
LAA Local Area Agreement
Section 2 Governance and engagement 15
Section 2
Governance and engagement
2.1 Shaping places requires strong local leadership. This guidance sets out how this can
be achieved through a partnership approach which fully engages local communities
in planning for the future of their area.
Local Strategic Partnerships

2.2 Local Strategic Partnerships (LSPs) provide the forum for collectively reviewing and
steering public resources, through identifying priorities in Sustainable Community
Strategies and LAAs. But (as non-statutory bodies) they are not the ultimate decision-
makers on such plans. All target-setting, and consequent financial, commissioning,
or contractual commitments proposed by LSPs, must be formalised through the
relevant local authority, or through one of the other LSP partners (for example, if
policing, or health resources are involved).
2.3 LSPs are not statutory bodies and there are no provisions in the Act that create a
legal relationship between either local authorities and ‘the LSP’ or their partners and
‘the LSP’. LSPs are instead a collection of organisations and representatives coming
together voluntarily to work in partnership.
The role of the LSP

2.4 The roles of the local authority with its LSP partners are summarised below:
• Exercise a leadership and governing role through identifying and articulating

the needs and aspirations of local communities and reconciling or arbitrating
between competing interests
• Have oversight of and coordinate community consultation and
engagement activities of individual partners and where appropriate combine
them (see para 2.25)
• Produce a Sustainable Community Strategy (SCS) based on data and
evidence from the local area and its population, to establish a shared local vision
and priorities for action (see section 3 on establishing a shared vision for more
details)
• Produce a unitary/county-wide Local Area Agreement (LAA), based on the
priorities identified in the area’s Sustainable Community Strategy/ies (see section
4 on preparing an LAA for more details);
• Have oversight of the planning and alignment of resources in the locality

(where relevant to delivery of the Sustainable Community Strategies and LAA)
in order to achieve more effective and efficient commissioning and ultimately
better outcomes. Although, each partner will remain accountable for its
decisions taken in relation to funding streams allocated to it (see section 6 on the
delivery of priorities for more details)
• Review and performance manage progress against the priorities and targets
agreed in the LAA and ensure delivery arrangements are in place (see section
6 on the delivery of priorities for more details). Part of fulfilling this will require
the local authority and its partners to seek to ensure that sufficient support is
provided to the LSP to help it coordinate the delivery of the targets that have
been agreed through the LAA.
2.5 In two-tier areas there will normally be LSPs at both county and district level, working
to fulfil these roles through individual as well as joint activity.
2.6 Local councils are expected to play a leadership role in these key and over-arching
partnerships. It is expected that local government will initiate and maintain
momentum in the LSP and ensure appropriate representation across the different
sectors including the involvement of local residents where appropriate and scrutiny
of the actions of the partner authorities in the LSP. Local government also has some
specific statutory duties and responsibilities to carry out, as explained below.
Strengthening democratic accountability – the leadership role for local

authorities
In relation to the overarching role for LSPs described above there are particular roles
that councils and elected members should fulfil:
i. L eadership: executive members in particular have a vital role in leading LSPs

through the negotiation and definition of priorities and in overseeing delivery.
Councillors also play an important leadership role in thematic partnerships. They
also have relevant leadership roles in other agencies such as police authorities, and
Regional Development Agencies, who are also partner authorities.
ii. Driving agreement of a shared set of priorities: the duty to produce a
Sustainable Community Strategy rests with the local authority. In addition, the duty
to prepare a LAA lies with the responsible local authority. In fulfilling this duty they
should seek to achieve collective consensus through the LSP on the content of the
LAA for the area.
Strengthening democratic accountability – the leadership role for local

authorities (continued)
iii. Neighbourhood or community representation: all councillors have a role
in advocating the needs of their communities whether urban, rural, parished or
unparished. It is crucial that they fulfil this role in order to advance community
involvement in decision-making, in accurately identifying local needs, and in
helping to judge the impact of delivery.
iv. S
crutiny: in addition, overview and scrutiny committees of councils have been
given new powers which will be implemented through guidance and regulations
to be made under the Act and under provisions in the Police and Justice Act 2006.
These new powers of scrutiny to be given under the Local Government and Public
Involvement in Health Act 2007 will relate specifically to scrutiny of the list of
partner authorities for LAA purposes – with the exception of police authorities and
the chief officer of police.
‘v. Leadership and the ‘power of wellbeing’
Part 1 of the Local Government Act 2000 created a discretionary power for local
authorities to do anything they consider likely to promote or improve the economic,
social or environmental wellbeing of their area11. The Government’s purpose in
introducing the wellbeing power was to confer on local authorities a broader
responsibility for the wellbeing of their area rather than just having accountability
for particular services. As such the power is designed to encourage innovation
and closer joint working between local authorities and their partners to improve
communities’ quality of life. It provides a key lever to deliver the shared priorities
agreed through the Sustainable Community Strategy and LAA. Statutory guidance
covering the wellbeing power was issued in 200112.
1112
LSP governance and accountability between partners and to

the local area
Key principles
2.7 In order to effectively achieve the role set out above, the Government believes that
each LSP should follow these key principles:
i. It is for the LSP collectively to develop clear and transparent lines of accountability
and responsibility between its partners. LSPs are at varying levels of development
and there should be flexibility in the governance arrangements. However,
the direction of travel must be towards more robust arrangements with an
embedded democratic accountability
The only restrictions are that although the power does not have any spending limits attached to it, it cannot be used to raise money.
11
Neither can it be used to circumvent other prohibitions, restrictions or limitations contained in legislation.
Power to promote or improve economic, social or environmental well-being DETR 2001
12
ii. The LSP structure should be driven by and reflect local circumstances. However,
it should include some form of executive board, which is able to take strategic
decisions underpinned by the main thematic partnerships for the area
iii. The chair of the board, whilst appointed by the LSP, will need to be formally
recognised by the relevant local authority’s executive
iv. It is essential that representatives from the local third sector and private business
sector are represented as part of the formal membership of the LSP and relevant
sub-groups. In addition, LSPs may want to include a broader range of private and
third sector partners in a forum or sounding board as part of the LSP’s structure
v. The representatives need to be able to take account of all of the community

including the diverse range of minority community interests. It should also be
clear how they will be able to influence the decisions and actions of the LSP
vi. The LSP will also need to draw on environmental, social and economic expertise
through its core membership and its thematic partnerships in order to agree a
robust Sustainable Community Strategy
vii. Individual partner authorities are responsible for agreeing particular targets in the
LAA and for having regard to those targets when exercising their functions
County and district LSPs

While county and district LSPs need to respect each other’s autonomy, they are
expected to work together in leading local partner activity on developing Sustainable
Community Strategies, spatial and thematic plans and a county-wide LAA. Any
priorities requiring the contribution of district councils or LSPs should be explicitly
agreed to by the relevant district LSP or council. See also paragraphs 4.7 and 4.10.
The relationship between the LSP and the thematic partnerships

2.8 In order to ensure the effective delivery of the agreed priorities, the thematic
partnerships in an area should underpin and support the executive board of the LSP.
This support will need to include:
• providing the LSP with sufficient information to make decisions

• being directly involved in the decision making processes
• co-ordinating the delivery of the relevant priorities agreed by the wider LSP.
2.9 There should be clear lines of accountability between the thematic partnerships and
the LSP that demonstrate how and when the partnerships can influence the decision
making process and hold, and be held, accountable by the LSP board.
Community Empowerment – the duty to involve

2.10 There is growing evidence, from both the UK and abroad, that involving citizens in
local decision making and service provision has a number of benefits. These include:
• strengthening the democratic legitimacy of government and the civic life of the
community13
• more efficient and effective services14 that better reflect the needs of users and
have higher levels of customer satisfaction15
• safer communities and a more attractive built environment that meets people’s
needs16
• strengthening community cohesion17
2.11 Local government and other partners have always involved communities in decisions
and services and there is a lot of good practice across the country. The new duty
to involve seeks to ensure people have greater opportunities to have their say. The
aspiration for the new duty is to embed a culture of engagement and empowerment.
This means that authorities consider, as a matter of course, the possibilities for
provision of information to, consultation with and involvement of representatives of
local persons across all authority functions.18
2.12 The new duty, which comes into force on 1 April 2009, is set out in section 138 of
the Act and takes the form of an addition to the best value provisions of the Local
Government Act 1999. The duty applies to all best value authorities in England
except Police Authorities.19 20 For ease of reference the rest of this section will refer to
“authorities”, meaning those authorities responsible for meeting the duty.
2.13 There is already a range of existing requirements such as statutory requirements

to inform, consult with or promote the participation of users or citizens, in relation
to individual functions (such as spatial planning), and there are also existing non
statutory agreements in certain areas (eg local compacts with the third sector).
The duty to involve does not replace these existing requirements. Instead, the new
duty needs to be considered in addition to them, ie authorities need to determine
The benefits of community engagement, a review of the evidence, Ben Rogers and Emily Robinson, Home Office / IPPR, 2004; How
13
local Government Devolves, and Why, LGA / Young Foundation/IDeA, 2006.

Housing: Improving services through resident involvement, The Audit Commission & Housing Corporation, 2004
14
Improving delivery in mainstream services in deprived areas ñ the role of community

15
Neighbourhood Management: An overview of the 2003 and 2006 Round 1 Pathfinder Household Survey, Communities and Local
16
Government, 2006
Our Shared Future, the report of the Commission on Integration and Cohesion, 2007
17
That is all of an authority’s powers and duties.

18
Best value authorities required to meet the new duty: Local authorities; National Park Authorities; the Broads Authority;Fire & Rescue
19
Authorities; Waste Disposal Authorities; Joint Waste Authorities; Passenger Transport authorities; Transport for London; Greater
London Authority in so far as it exercises its functions through the mayor; and the London Development Agency.
Police Authorities are exempt from this duty as they are already covered by similar provisions in Section 96 in the Police Act 1996;
20
Section 157 the Serious Organised Crime and Police Act 2005.
whether the new duty requires any extra actions over and above these more specific
requirements. In doing so they should also consider whether any extra activities can
be conducted jointly with other authorities (see paragraph 2.25 for more detail).
2.14 When considering if and how representatives of local persons should be involved
authorities should bear in mind that the duty does not give any new powers. For
instance it does not enable authorities to pass on duties or responsibilities to another
body, group or individual beyond the powers set out in other legislation (eg section
101 of the Local Government Act 1972 – arrangements for discharge of functions by
local authorities by a committee, a sub-committee or an officer of the authority; or by
any other local authority). Authorities will also want to consider how organisations
delivering services on their behalf can best adhere to the principles underpinning
this duty.
What does the new duty to involve require?

2.15 The duty requires authorities to take those steps they consider appropriate to involve
representatives of local persons in the exercise of any of their functions, where they
consider that it is appropriate to do so. It specifies the three ways of involving that
need to be covered in this consideration:
• providing information about the exercise of the particular function

• consulting about the exercise of the particular function
• involving in another way
What do we mean by “representatives of local persons”?

Within the context of this duty the term “local persons” refers to those likely to be
affected by, or interested in, a particular authority function. It should be noted that the
term “local persons” is not simply a reference to local residents. It also covers those
who work or study in the area (including those who work for the authority); visitors;
service users; local third sector groups; businesses; bodies such as parish councils; and
anyone else likely to be affected by, or interested in, the function. The term covers
children and young people, as well as adults.
The phrase “representatives of local persons” refers to a mix of ”local persons”, ie a

balanced selection of the individuals, groups, businesses or organisations the authority
considers likely to be affected by, or have an interest in the authority function. As such,
authorities should consider the diverse groups within the community who might be
affected by, or interested in, a particular authority function (paragraphs 2.22 to 2.23
provide more information on the issues authorities should consider when determining
representatives of local persons)
What does this mean for elected representatives?

In the context of this duty the term “representative” does not refer to formally elected
or nominated members of the community. Councillors, and other elected members
of the community, have a key role as advocates representing the concerns and wishes
of the community. The duty to involve seeks to build on this by increasing the range of
opportunities available for citizens to have their say and get involved directly.
2.16 Authorities will need to consider whether one, two, all three or none of the
approaches at para 2.15 are appropriate in the exercise of any particular function.
They will also need to consider the need to adopt different approaches for different
functions. The type of involvement that is appropriate is also likely to differ
depending on the body in question.
2.17 Authorities should provide representatives of local persons with appropriate information
about services, policies and decisions which affect them or might be of interest to them.
The provision of information should support representatives of local persons to have
their say and get involved in authority functions where appropriate. This therefore
goes beyond the simple provision of information on how to access services (including
locations, opening hours, eligibility criteria etc), although this remains an important
aspect of effective delivery. Authorities should ensure information is provided in a
way that representatives of local persons can easily access and understand, tailoring
it as appropriate to different audiences to support involvement.
2.18 Authorities should offer representatives of local persons appropriate opportunities to

have their say about the decisions and services that affect them through consultation.
Some examples of consultation include formal (including mandatory) consultations,
satisfaction surveys, as well as direct dialogue with representatives of local persons,
for example through deliberative panels and focus groups. Consultation needs to
provide genuine opportunities for people to be involved so authorities will want to
draw on widespread evidence of what constitutes good practice in consultation.
2.19 Authorities should consider where it is appropriate to provide representatives of

local persons with opportunities to have their say and get involved in activities over
and above being informed and consulted. ‘Involvement’ will be the most interactive
form of engagement, giving representatives of local persons greater influence
over decisions or delivery. Authorities should consider providing opportunities for
representatives of local persons to:
• influence or directly participate in decision making (eg in helping to

shape local priorities via citizen panels, service advisory panels, neighbourhood
management, participatory budgeting; citizen juries)21
See also the sections on consultation as part of preparing the Sustainable Community Strategy and draft Local Area Agreement
21
• provide feedback on decisions, services, policies and outcomes (eg ‘have

your say’ section on the authority website; service-user forums; petitions; and
feedback forms being made available)
• co-design/work with the authority in designing policies and services
(eg being involved in the commissioning of services)
• co-produce/carry out some aspects of services for themselves (for example
having responsibility for the maintenance of a community centre; the transfer
of the management of assets; communities taking part in ‘street clean up’ or
environmental conservation work)
• work with the authority in assessing services (eg citizens acting as mystery
shoppers, user evalutors and as co-opted members of Overview and Scrutiny
Committees)22
The role of information provision in consultation and involvement

When consulting and/or involving representatives of local persons authorities should
clarify the purpose, scope and parameters of the activity.
When consulting authorities should consider how to ensure local representatives are
aware of:
• the different options available, the pros and cons of each and any other relevant
background information
• the decision making process (ie how decisions are made, who makes the final
decision and what evidence is taken into consideration)
• how their views will inform decisions
• how the authority will inform representatives of local persons about the authority’s
actions/decisions and any relevant means of appeal
The importance of feedback

Authorities should consider how they feed back the outcomes of any consultation
or involvement to representatives of local persons. In doing so we would encourage
authorities to make clear how the input of representatives of local persons has
contributed to the decision/s.
It may not be possible, or appropriate, to take the particular course of action favoured
by representatives of local persons. It will be the role of the authority to take the final
decision, balancing different (sometimes competing) interests. In such cases authorities
should still seek to explain how representatives of local persons have influenced the
course of action taken by the authority, as well as the reasons for the final decision.
For practical information on involving people see www.peopleandparticipation.net.

22
Applying the duty

When is it appropriate to inform, consult and/or involve?
2.20 Authorities will need to consider how they go about meeting the duty in relation to
routine functions, as well as significant one-off decisions. In doing so they should also
seek to link up, and ideally combine, engagement opportunities with activities being
run across the authority as well as by other local partners (see paragraph 2.4 for more
details). They should not shy away from involving people in difficult issues but will
need to be clear in such circumstances about how much influence over decisions is
being offered.
2.21 In meeting this duty, authorities should consider:
• privacy: representatives of local persons should not be involved in individuals’

personal matters eg individual cases of adoption. However it might be
appropriate to inform, consult and/or involve representatives of local persons in
the policy development around these issues
• previous engagement or involvement (either by the authority or others): this
should be used to inform the next stage of involvement with the public so as to
avoid duplication and to help move any engagement forward
• possible benefits and costs: authorities should consider the predicted benefits
of informing, consulting and/or involving against the costs of that involvement
Who should be informed, consulted and/or involved?

2.22 Authorities should determine whom it would be appropriate to inform, consult or
involve (see paragraph 2.15 for explanation of the phrase representatives of local
persons). This will vary depending on the type of authority (including the spatial level
at which they operate) or the policy or service in question.
2.23 We recognise that many authorities are well aware of the need to engage a diverse
range of groups within the community and to take action to ensure that all groups
within the area are engaged. This is particularly important in the discharge of
this new duty. Authorities will need to consider carefully who might be affected
by, or interested in, a particular function and ensure any information provision,
consultation or involvement opportunity effectively reaches the relevant parts of the
community – including those who can often be marginalised or vulnerable people
(sometimes referred to as ‘hard to reach’). It is important that information provision,
consultation and involvement opportunities are not limited to those with the ‘loudest
voice’. Authorities should be aware that equality requirements will apply to the duty
to involve.
The role of the third sector23
What do we mean by “the third sector”?

The Government defines the third sector as non-governmental organisations
that are value driven and which principally reinvest their surpluses to further
social, environmental or cultural objectives. It includes voluntary and community
organisations, charities, social enterprises, cooperatives and mutuals. Each area will
want to develop and keep under review an understanding of the third sector operating
in their locality.23
2.24 There are three possible ways authorities should think about involving the third sector
as part of the new duty. Firstly, local third sector organisations might be affected by,
or interested in, a particular authority function. As such an authority might decide
that it is appropriate to inform, consult and/or involve the group in some way.
Secondly, third sector organisations might have a role as advocates for local people
(particularly marginal and/or otherwise vulnerable groups). Therefore an authority
might decide to involve a third sector organisation in addition to individual citizens
and groups. Finally, third sector organisations might be able to provide relevant
expertise and specialist knowledge that might help the authority in reaching out to
marginalised and vulnerable groups.
What information, consultation and/or involvement is appropriate?

2.25 Authorities regularly need to make decisions about how best to engage their local
community. In terms of fulfilling the duty we would expect authorities to consider:
• Accessibility: authorities should ensure that representatives of local persons are

informed/consulted/involved in a way that considers their needs. The appropriate
method of engagement will depend on local circumstances and the audience the
authority is trying to reach. Authorities should monitor the effectiveness of the
chosen method of engagement.
• Proportionality: authorities should consider the resources needed to inform,
consult, and/or involve appropriately. The extent of the engagement should be
proportionate to the significance of the issue – both to the authority and to local
people – and to the benefits to be gained from involvement.
See also paras 6.15 and 6.16 of this document

23
• Coordination: authorities should ensure that activities to inform, consult and

involve representatives of local persons do not take place in isolation, but as part
of an integrated approach across the area.24 As such, authorities should have a
coordinated approach to information provision, consultation and involvement.
They should ensure relevant knowledge, expertise and experience are shared
between officers and elected representatives and future engagement activities
are planned using this knowledge
• Partnership-working: we would also encourage authorities to work with
partners through their Local Strategic Partnership to co-ordinate information
provision, consultation and involvement and to share relevant knowledge (see
paragraphs 2.4 to 2.6)
• Timing: authorities should consider when representatives of local persons
should be informed, consulted and/or involved. In line with best practice it should
be as early as possible to ensure that authority functions are shaped around the
needs and aspirations of the community
What will success look like?

2.26 The activities that authorities undertake to meet the duty will depend on local
circumstances. Appropriate engagement and empowerment should be embedded
as standard practice throughout authorities, central to service delivery, policy and
decision making.
2.27 Authorities should be able to demonstrate, through evidence gathered in the normal
course of business, that:
• they understand the interests and requirements of the local community

• they use their understanding to ensure information, consultation and
involvement opportunities are provided on the right issues, targeted at the right
people, and accessible to those the authority is trying to reach
• they have an appropriate corporate approach to providing information,
consulting and involving in other ways that flows throughout their organisation
– from strategic policies into individual service delivery – and that they coordinate
their engagement activities with partners where appropriate
• local people will feel that the authority provides relevant and accessible
engagement opportunities and will know how to get involved, either directly
or though their elected representative. Local people will recognise that the
authority’s priorities and policies reflect this involvement and services are tailored
to local needs, even though difficult choices in service provision need to be made
The local government white paper, Strong and Prosperous Communities (published October 2007) and the planning white paper,
24
Planning for the Sustainable Future (published June 2007) highlighted the importance of authorities having a co-ordinated approach
to engagement. To facilitate this we are proposing to repeal the requirement of an independent examination of the Statement of
Community Involvement by the Planning Inspectorate. This means authorities will have more flexibility around how they use the
statement and can therefore extend the scope of the statement, should they wish to.
Section 3
Establishing a vision for the area
Sustainable Community Strategies

3.1 The purpose of a Sustainable Community Strategy is to set the overall strategic
direction and long-term vision for the economic, social and environmental well-
being of a local area – typically 10-20 years – in a way that contributes to sustainable
development in the UK. It tells the ‘story of the place’ – the distinctive vision and
ambition of the area, backed by clear evidence and analysis. The Local Government
White Paper, Strong and Prosperous Communities25 set out that the Sustainable
Community Strategy will provide ‘a vehicle for considering and deciding how to
address difficult and cross cutting issues such as the economic direction of an area,
cohesion, social exclusion and climate change’.
3.2 Sustainable Community Strategies should contain the following elements:
• the long-term vision based firmly on local needs – this will be underpinned
by a shared evidence base informed by community aspirations
• key priorities for the local area, based upon this vision which may realistically
be achieved in the medium term – these will inform the strategy’s delivery
agreement – the Local Area Agreement (LAA)
3.3 By virtue of section 1(a) of the Local Government Act 2000, the duty to prepare a
Sustainable Community Strategy applies to the following authorities in England:
• County councils
• District councils (this includes shire district councils, metropolitan district councils
and other unitary district councils). Although district councils may choose to
prepare their strategy together with the county council ie not to prepare a
separate strategy (see paragraph 3.23)
• London borough councils
• The Common Council of the City of London in respect of its functions as a local
authority
• The Council of the Isles of Scilly.
See http://www.communities.gov.uk/localgovernment/currentagenda/strongprosperous
25
Section 3 Establishing a vision for the area 27
3.4 Section 4(3) of the 2000 Act, as amended by section 114 of the Act, distinguishes
between responsible authorities (those required to prepare an LAA) and other
authorities (districts in two-tier areas). It requires responsible local authorities, when
preparing or modifying their Sustainable Community Strategies to consult and seek
the participation of each partner authority and such other persons (ie organisations
and people) as they consider appropriate whereas districts are simply under a duty to
consult and seek the participation of such organisations and people as they consider
appropriate.
3.5 The responsible authority is required to consult and seek the participation of each
partner authority in the preparation or modification of their Sustainable Community
Strategy in order to help ensure that their Sustainable Community Strategy
represents the shared view across the partner authorities of the longer-term priorities
of their locality. This is particularly important as we expect the shorter-term targets
agreed through the LAA to reflect these longer-term priorities (see paragraph 4.1 for
more detail).
3.6 Local authorities will need to consider how they consult with representatives of
local people (including residents and workers), parish councils, local businesses and
third sector organisations on their Sustainable Community Strategies in the light
of the principles enshrined in the new duty to involve (see section 2). Guidance on
consulting with representatives of local people in the context of the Sustainable
Communities Act can be found at Annex A.
3.7 Once prepared, the Sustainable Community Strategy must be agreed at full council
in accordance with the Local Authorities (Functions and Responsibilities) Regulations
2000/2853.
What do we mean by a Sustainable Community Strategy?

3.8 The statutory duty as to the preparation of a Sustainable Community Strategy
provides that it is a strategy that should contribute to the achievement of sustainable
development in the United Kingdom. The goal of sustainable development is to
enable all people throughout the world to satisfy their basic needs and enjoy a
better quality of life, without compromising the quality of life of future generations’
(Securing the Future – UK Government Sustainable Development Strategy 2005).
3.9 For a local priority or policy to be sustainable, it should respect five principles:
• living within environmental limits

• a strong, healthy and just society
• achieving a sustainable economy
• promoting good governance
• using sound science responsibly26
3.10 The shift to Sustainable Community Strategies emphasises, to a greater extent

than previously, that sustainability should be at the heart of decisions taken on the
content of the strategy. Sustainable Community Strategy’s economic, social and
environmental priorities should therefore demonstrate how they support each other
in an integrated way. The strategy should also address the area’s longer-term needs
and those issues which affect the area that can only be addressed by looking across
boundaries. Local authorities should continue to have regard to the Government’s
Sustainable Development Strategy27 and may wish to use the procedures in the
Sustainable Communities Act.
How do Sustainable Community Strategies relate to

other plans?
3.11 In any given local authority area, the Sustainable Community Strategy is the
overarching plan for promoting and improving the well-being of the area. The
Local Government White Paper emphasised the need for Sustainable Community
Strategies and other local and (sub) regional plans to take account of each other, as
they are prepared. The following paragraphs set this out in more detail.
Local Area Agreements

3.12 Responsible authorities are required by section 106(2)(c)(i) of the Act to have
regard to their Sustainable Community Strategy when preparing their Local Area
Agreement (LAA). In two-tier areas, district councils should have regard to their
Sustainable Community Strategy when negotiating LAA targets as a matter of good
practice. The Local Government White Paper envisaged the LAA as being the delivery
agreement for the Sustainable Community Strategy.
UK Sustainable Development Strategy 2005

26
http://www.sustainable-development.gov.uk/
27
Local Development Frameworks
3.13 Local planning authorities are required by Section 19(2)(f) & (g) of the Planning &
Compulsory Purchase Act 2004 to have regard to Sustainable Community Strategies
covering the area (ie in two tier areas, both county and district strategies) when
preparing their Local Development Frameworks (LDFs). Local authorities should as far
as possible align the Core Strategy of the LDF with the unitary, district or county-wide
(if merged) Sustainable Community Strategy.
3.14 In more closely aligning the core strategy of the LDF with the Sustainable Community
Strategy, local authorities and their partners should help to ensure that their strategy
is genuinely sustainable. In some cases Strategic Environment Assessment (SEA)
may be required for Sustainable Community Strategies.28 Where this is the case it
should be integrated into a wider Sustainability Appraisal (SA ) process incorporating
consideration of social and economic effects in addition to matters outlined in the
SEA directive. This is already required for certain LDF documents and where an
SA is undertaken for both documents there may be further opportunity for closer
alignment between the SCS and LDF, including the sharing of baseline information
evidence gathering activities, assessment and reporting. Furthermore, planners have
a duty to ‘exercise their functions with a view to contributing to the achievement of
sustainable development’.
3.15 The Government intends to remove the independent examination of the Local
Development Framework’s Statement of Community Involvement, partly so as to
allow for more coordinated consultation, for example with that for the Sustainable
Community Strategy.
Housing and homelessness strategies

3.16 The Local Government White Paper 2006 recognised the importance of housing as
being “at the heart of achieving the social, economic and environmental objectives
that shape a community and create a sense of place”. The Housing Green Paper
Homes for the Future: More Affordable, More Sustainable further emphasised the
importance of the strategic housing role, in terms of delivering new market and
affordable housing, making the best use of existing stock, and responding to the
needs of all residents across all housing tenures.
3.17 Local authorities have a statutory requirement to revise their homelessness strategies
at least every five years. Authorities will also want to periodically refresh their housing
strategies. Local authorities will have discretion about how, when, and in what
format they document their refreshed housing strategy. Whatever format is chosen,
refreshed housing strategies should:
Guidance on whether community strategies should be subject to Strategic Environment Assessment can be found on p46 of A
28
Practical guide to SEA – Directive (European Directive 2001/42/EC on the assessment of the effects of certain plans and programmes
on the environment – see also http://www.communities.gov.uk/publications/planningandbuilding/praticalguide)
• fully reflect the wider vision of the authority and its partners
• reflect a clear and evidenced approach
• provide a strong focus on how partners will deliver their commitments, including
on the infrastructure needed to support housing growth
3.18 Recognising the importance of ensuring that the strategic vision for the area takes
full and proper account of housing, local authorities are expected to incorporate
revised homelessness strategies and housing strategies within their Sustainable
Community Strategy where possible.
Regional and sub-regional plans

3.19 The Review of Sub-national Economic Development and Regeneration29 outlined
proposals to integrate the Regional Economic Strategy and Regional Spatial Strategy
into a single integrated Regional Strategy which would be prepared by Regional
Development Agencies working closely with local authorities and other partners.
This will require legislation and until such time as that is in place, it is sensible for
local areas to have regard to existing regional plans when revising their Sustainable
Community Strategy. This arrangement would not apply in London.
3.20 London boroughs, when preparing their Sustainable Community Strategy, should
continue to have regard to the statutory strategies prepared by the Mayor of London
under the Greater London Authority Act 1999 (as amended by the Greater London
Authority Act 2007). However, there are particular statutory requirements in relation
to some strategies which may be applicable to Sustainable Community Strategies:
• Local Development Framework (LDF) documents – including any core strategy

incorporated into a Sustainable Community Strategy – must be in general
conformity with the Mayor’s Spatial Development Strategy (Section 333D(2) of
the Greater London Authority Act 1999 and 2007);
• Any local housing strategy prepared by the borough – including any statements
of housing policy in a Sustainable Community Strategy – must be in general
conformity with the Mayor’s London Housing Strategy (Section 24(1)(b) of the
Planning and Compulsory Purchase Act 2004).
Local and neighbourhood plans

3.21 Many town and parish councils, and other groups in rural areas have developed
Parish Plans30 with their communities and local partners, which are similar in scope
to Sustainable Community Strategies. In other areas Neighbourhood Action Plans31
fulfil a similar function. These are likely to be valuable for informing the development
of Sustainable Community Strategies or acting as local delivery plans for the LAA.
http://www.hm-treasury.gov.uk/spending_review/spend_csr07/reviews/subnational_econ_review.cfm
29
http://www.defra.gov.uk/rural/communities/parish-planning.htm
30
http://www.renewal.net/toolkits/LSPDeliveryToolkit/ Details of Neighbourhood Action Plans can be found as part of the LSP toolkit
31
Local and neighbourhood plans also provide an excellent way to translate how the
broader priorities set out in the Sustainable Community Strategy and LAA will affect
local residents.
Other statutory plans

3.22 Following the rationalisation of local authority plan requirements as a result of
commitments in the 2001 Local Government White Paper, there are significantly
fewer plans that local authorities are required to prepare. The remaining statutory
plans and policies that local authorities and LSPs will need to consider are illustrated
in figure 2 below:
Figure 2
Joint Strategic Needs

Integrated Assessment for Health
Regional Strategy/ and Social Care
Regional Strategies
(Or London Crime and Disorder

Mayor’s plans) Reduction strategy
Local Transport Plan
Children and Young

People’s Plan
Sustainable
Community Strategy
National Park
(Incorporting housing Managment Plan
and homelessness
priorities/strategies)
Municipal Waste Strategy
Licensing policy
Local
Local Area
Development
Agreement Partners’ corporate and
Framework
operational plans
How do Sustainable Community Strategies work in multi-

tier areas?
3.23 The requirement to prepare Sustainable Community Strategies applies to both
district and county councils. Section 101 of the Local Government Act 1972
permits an authority to discharge any functions jointly with another. Most district
partnerships have prepared their own community strategy; others have prepared
joint strategies with other district areas; some have contributed to overarching
county-wide strategies and not prepared their own. Some county partnerships have
not prepared their own strategy but have contributed to district strategies.
3.24 With the advent of Local Area Agreements, we would expect at a minimum there to
be an agreed county-wide set of priorities. This would sensibly be set out in a county-
wide Sustainable Community Strategy.
3.25 Each county and district council, having consulted its LSP, must decide for itself
which models they wish to adopt. Authorities should consider priorities in existing
local Sustainable Community Strategies and other plans when undertaking the
next iteration of their strategy. In particular county tier partnerships, in negotiation
with their district counterparts, must be able to demonstrate how they have taken
account of individual district characteristics and objectives when setting priorities
in the county tier’s strategy. This will be particularly important as it will be possible
to set both district and sub-district-level targets in LAAs (see the National Indicators
Handbook of Definitions32 for more details on the different spatial levels at which the
indicators have been set).
Reviewing or refreshing Sustainable Community Strategies

3.26 Sustainable Community Strategies will need to be reviewed and refreshed over time
to ensure that they remain accurate and up-to-date. This is particularly important as
we expect the LAA to reflect the longer-term priorities expressed in the Sustainable
Community Strategy. It is possible for Sustainable Community Strategies to be
revised in stages, so if only one or two themes need revisiting, these chapters can be
drawn up while the remainder of the strategy stays in place.
The duty to produce a Joint Strategic Needs Assessment

3.27 Section 116 of the Act introduces a requirement for Primary Care Trusts (PCTs) and
responsible local authorities to produce a Joint Strategic Needs Assessment (JSNA) of
the health and social care needs of their local community.
National Indicators for local authorities and local authority partnerships 2007/08: Handbook of definitions.
32
www.communities.gov.uk/publications/localgovernment/indicatorsdefinitions
3.28 This assessment should set out the future health and social care needs of local
populations. The assessment should cover those issues where the responsibilities
of PCTs and local authorities overlap or where one organisation in carrying out its
functions impacts to a significant extent on the other organisation’s functions.
3.29 The JSNA will need to consider the needs of the population living within the
boundaries of the upper tier local authority or unitary council. In two-tier local
authority areas, upper tier local authorities will need to consult with those district
councils within their geographical area. In order to provide a firm link between the
results of the JSNA and the Sustainable Community Strategy of each local authority,
PCTs within a local authority’s geographical boundary should feed into a single
assessment.
3.30 It is expected that the JSNA will be carried out jointly by the Director of Public Health,
the Director of Adult Social Services and the Director of Children’s Services.
3.31 The JSNA should be taken into account by the upper-tier local authority in its
preparation of the Sustainable Community Strategy. As the overarching strategy for
the area, the issues identified in the Sustainable Community Strategy will then inform
the priorities and targets in the LAA.
3.32 More detailed information to help local authorities and PCTs carry out effective JSNAs
will be provided periodically in guidance.
Section 4
Agreeing priorities for an area
Local Area Agreements

4.1 The Local Area Agreement (LAA) sets out the ‘deal’ between central government
and local authorities and their partners to improve services and the quality of life
for local people. As such, the LAA is also a shorter-term delivery mechanism for the
Sustainable Community Strategy. The Sustainable Community Strategy provides
the story of the local area and should therefore articulate the longer term ambition,
evidence and rationale beyond the focus of a three-year LAA. Responsible local
authorities are required by the Act to have regard to their Sustainable Community
Strategy when preparing their LAA.
4.2 This section sets out the long-lasting expectations being placed on responsible local
authorities by the LAA process as a result of Sections 103 – 113 of the Act. Separate
guidance may from time to time be issued explaining the non statutory parameters
of LAA negotiations (including details of the indicator set, timetable, financial
arrangements etc).
Preparing a Local Area Agreement

4.3 This section relates to the following local authorities, which are defined in Section
103 of the Act as responsible local authorities. They are:
• County Councils
• Unitary District Councils
• London Boroughs
• The Council of the Isles of Scilly
• The Common Council of the City of London
4.4 Responsible local authorities must prepare an LAA when directed to do so by the
Secretary of State. In doing so, they must take the following steps:
Section 4 Agreeing priorities for an area 35
Consult and cooperate with each partner authority (listed at paragraph 5.4)
4.5 The aim of the duty to consult and cooperate in determining LAA targets is to involve
all partner authorities in identifying the appropriate mix and value of targets for
a draft LAA based on the agreed evidence-base and longer-term priorities in the
Sustainable Community Strategy. The responsible local authority must consult all
partner authorities (see paragraph 5.4) which act or are established in their area or
in the case of NHS Trusts and NHS Foundation Trusts, provide services from a facility
in the area. In doing so, the responsible local authority should work with partner
authorities through the LSP and its thematic partnerships to collectively agree a
shared set of priorities for the LAA, before working with them to determine how
each target is drafted.
4.6 The role of the LSP as the forum through which consultation and co-operation takes
place is elaborated in paragraph 5.6, but it should not be seen as an isolated task.
Fulfilling these duties should instead be viewed as part of the core and ongoing role
of the partnership; from setting the vision for the area in the Sustainable Community
Strategy, through to agreeing activities to deliver against priorities (see paragraph 6.2
on implications of having regard to LAA targets).
4.7 In two tier areas, there needs to be close co-operation between counties and districts
in agreeing local priorities. Like other partner authorities, districts have important
functions of their own, but they also act as wider community leaders; they have
broad powers to promote well-being and they have important relationships with
partners through district level LSPs. Counties and districts will need to agree locally
how to best make use of their respective partnerships to achieve the necessary
consensus.
Consulting other partners

4.8 Responsible local authorities are required by the Act to consult ‘such other persons
as appear to it to be appropriate’. In doing so, it is for responsible local authorities to
use their discretion in deciding which partners outside the list of partner authorities
to consult, but they should aim within reason to be inclusive of all bodies and persons
that could meaningfully contribute to the preparation and attainment of LAA targets
and to provide a timely opportunity for them to contribute their views. Therefore the
Government believes that in fulfilling this duty, they should consider consulting:
• persons and organisations from the local business and third sectors
• local people and their representatives, in line with existing duties regarding
the transparency of decision-making (see Part 5A of the Local Government Act
1972) and new duties under the Best Value duty to involve (see Chapter 2)
• parish and town councils, which have their own democratic legitimacy and are
able to provide a particularly local perspective
• elected members of local authorities (including district councillors in two

tier areas), who have a responsibility to represent the interests of their wards
and who may also have a formal role in signing off draft LAAs and in scrutinising
performance against LAA targets through Overview and Scrutiny Committees
• those authorities which are not established in the area, but which do take
decisions that affect people in the area. For example; a NHS Trust providing
services to local residents from facilities operating beyond the local authority
boundary
• other bodies which provide key services to or on behalf of the public, but which
are not partner authorities eg utilities, universities, colleges, schools, registered
providers of social housing and representatives of service personnel
• neighbouring local authorities, in order to address cross-boundary issues
Further information on consultation can be found at paragraphs 5.7 – 5.9 and 5.12.
The negotiation
The processes that need to be agreed locally
4.9 It is through the negotiation process that the new duties to consult and cooperate
will be discharged. Before negotiations begin, a clear process is needed which
is understood by all partners. LSPs should agree the key milestones, time-scales
and governance structures, asking what needs to be decided, when, by whom,
at what level, how and what support is needed? LSPs need to agree the process
and timetable well in advance of negotiations and should aim to make a schedule
available publicly, so that all partners have sufficient opportunity to influence the
negotiations. It will also be incumbent on central government collectively, through
the Government Offices, to commit to a clear and agreed timetable for negotiations
with their local partnerships. Where there is disagreement between the responsible
local authority and a partner authority or other partner as to the appropriate degree
of involvement, the LSP or the relevant thematic partnership is the forum in which the
matter should be resolved.
4.10 The convening role of district councils during negotiations is broadly the same as for
county and single tier councils ie that locally elected representatives should take a
wider view of the needs and challenges facing their areas and bring a steering and
influencing role to all the various local partnership tables at which they sit.
The role for the responsible local authority during the negotiations
4.11 As the body responsible for preparing the LAA, each county and single tier local
authority must seek to achieve collective consensus, via its LSP, to the content of the
LAA for the area. At the end of the process, when giving its formal approval to the
final LAA, the responsible local authority should satisfy itself that the targets within
the agreement reflect the right balance and level of ambition. It must also ensure that
in coordinating the negotiation and decision-making process, it is meeting all the
normal requirements of local government legislation.
Public routes of redress

4.12 If citizens are unhappy with the way priorities are set within a LAA, complaints or
efforts to seek redress (such as involvement of the Local Government Ombudsman)
may start with the county or single tier local authority, as the responsible local
authority. However, the outcome of any such complaint will need to take account of
the context of partnership working, and the roles of different partners.
Submitting the draft LAA to the Secretary of State

Deciding which targets relate to it
4.13 Section 105(2) of the Act states that a target will relate to a responsible local authority
if any of the functions or anything done by the responsible local authority could
contribute to the attainment of the target.
Obtaining council approval for the draft LAA

4.14 Having followed these steps and consulted and cooperated with partners through
negotiation to agree a draft LAA, the responsible local authority will need to formally
approve its LAA prior to submitting it. The process and timetable for submission will
be set out as necessary in the formal direction made by the Secretary of State and in
any accompanying non-statutory LAA guidance.
4.15 The Local Authorities (Functions and Responsibilities) Regulations 2000 SI 2000/2853
have been amended to allow local flexibility as to who will have responsibility for
preparing and approving the LAA. This means that the full council of the responsible
local authority will need to decide whether to discharge functions by itself or
delegate them to the executive. This decision will need to be made and the draft
LAA properly signed off before it is submitted to the Secretary of State. In areas with
both district and county councils, it will be at the discretion of the individual district
councils as to whether they choose to formally adopt those targets they are signing
up to; otherwise the function will rest with the executive by default.
4.16 In accordance with section 106(1) of the Act, the draft LAA must set out at a
minimum:
• the proposed local improvement targets

• which persons will be helping to deliver each target
• the period for which the LAA is to have effect.
4.17 For the second of these requirements, it is important that the draft LAA clearly states
which of the partner authorities has agreed to help deliver each target, so that it is
clear on the face of the draft LAA who will be subject to the duty to have regard (see
paragraph 6.2 for more details).
4.18 In order to strengthen local accountability responsible local authorities and their
partners may also wish to make clear by particular targets who will be the ‘lead
partner’ ie who will take overall responsibility for ensuring progress against the
target. When stating which partner authorities have agreed to help deliver each
target, partner authorities should be referred to in accordance with their full legal
title as set out at paragraph 5.4 eg ‘X Primary Care Trust’ or ‘Local Probation Board
Y’ rather than ‘health’ or ‘criminal justice services’. In order to ensure that the duty
to have regard comes into effect partner authorities should also be referred to
individually rather than collectively as members of, for example, the ‘health board’ or
‘environment partnership’. However, distinguishing a ‘lead partner’ from amongst
those partners who have agreed to help deliver each target is not a requirement.
The approval and designation process and the role of the

Secretary of State
4.19 It is at the discretion of the local partners to agree how many local improvement
targets are contained within the draft agreement and it is these targets which will be
subject to formal designation by the Secretary of State. When submitting their draft
LAA for approval, the responsible authority in consultation with its local partners
and the Government Office will have already highlighted those local improvement
targets which it anticipates the Secretary of State will want to ‘designate’. Once the
draft LAA has been submitted to the Secretary of State, they will formally consider
the draft to ensure that they are content. Following consideration and clearance
through Cabinet Committee, the Secretary of State will then formally approve the
draft LAA and designate the appropriate local improvement targets. The maximum
number of local improvement targets to be designated in each round will be set out
as necessary in non–statutory operational guidance.
4.20 In the event that the Secretary of State is not content with an individual draft LAA,
they may request a modification of the draft LAA by the responsible local authority
and its partners. This scenario is expected to arise very infrequently as the draft LAA
will have been subject to the detailed negotiation described above and will be based
on the sound evidence base within the Sustainable Community Strategy.
The distinction between designated and non-designated

targets
4.21 In legal terms, the distinction between designated and non-designated targets
are the circumstances under which they may be amended. Targets that have been
designated by the Secretary of State, either following the submission and approval
of the draft LAA or as part of a revision proposal, may not be altered without the
agreement of all partners signed up to the target and the Secretary of State (see
paragraph 4.26). By contrast non-designated targets may be amended or dropped
without the approval of the Secretary of State – with only the agreement of the
relevant partner authorities and after the responsible local authority has consulted
those who have agreed to help deliver the target on a voluntary basis. However, in
practice, in either case we would also expect any major revisions to the balance of
targets within an LAA to be discussed by the LSP board.
4.22 As a matter of practice the responsible authority and its partners will be required
to report to central government the progress they have made towards achieving
targets that have been designated. These designated targets will be tied to
indicators contained within the national indicator set.33 Non-designated targets will
not be reported on to central government, but as they will be of key importance
locally, progress towards meeting them will be taken into account as part of the
Comprehensive Area Assessment.
Equality of status between designated and non-designated targets

4.23 Despite the different procedures for amending designated and non-designated
targets they are of equal importance to local authorities and their partners and as
such carry the same legal weight ie partner authorities and the responsible authority
will be required to have regard, in the exercise of their functions, to both designated
and non-designated targets which they have signed up to help deliver.
Revising an LAA
4.24 Throughout the lifetime of each LAA, local improvement targets may be revised
by partners under different procedures depending whether or not the target has
been designated. There are also additional procedures for adding further local
improvement targets to the agreement.
National Indicators for Local Authorities and Local Authority Partnerships: Handbook of definitions.
33
4.25 Non-designated local improvement targets within the approved LAA may be
amended or removed from the LAA by the responsible authority, although not within
the first month after approval of the draft LAA. The responsible authority must have
the consent of each partner authority to whom the target relates before they may
amend or remove a non-designated local improvement target and must also consult
any other persons to whom the target relates (see section 110(2) and (4) of the Act).
There is no role for the Secretary of State within this procedure. A responsible local
authority may add further local improvement targets to the LAA under section 110(6)
at any stage of the life of the agreement, with the consent of partner authorities who
intend to sign up to the new targets and wish to participate in helping to deliver them
and following consultation with each other person to whom it is to relate.
4.26 Designated targets within an approved LAA may also be revised either at the
initiation of the responsible authority or at the initiation of the Secretary of State.
A ‘revision’ of a designated target may be to change or remove an existing
designated target. This is done through a revision proposal (see section 111 of the
Act). The revision proposal must outline the changes that are being proposed and
whom the revised target is to relate to (ie the persons who have consented to helping
to deliver the target). As with the procedure followed during the drafting of the
LAA, the responsible local authority must consult each partner authority and any
other persons who appear appropriate. The same duty of cooperation, in agreeing
changes to or the removal of targets, also applies, as does the requirement on the
responsible local authority to have regard to its Sustainable Community Strategy and
the requirement on the responsible local authority and partners to have regard to
any guidance issued by the Secretary of State. Once the revision proposal has been
submitted to the Secretary of State, they may then either:
• approve the revision proposal

• reject the revision proposal
• request it to be revised further (although only if he had originally directed the
revision)
4.27 Any modifications to the LAA, whether they are amended or new local improvement
targets, or revised designated targets, trigger the duty to publish information on the
LAA, as set out below.
The duty to publish information about a LAA

4.28 Section 113 of the Act places a duty on the responsible local authority to publish a
memorandum relating to the LAA which must contain the following information:
• the period of time for which the LAA has effect

• a description of each LAA target
• whether each target is designated or not
• which partners have a statutory duty to have regard to those targets (this can
only apply to partner authorities and the responsible local authority)
• which partners have agreed to help deliver a target on a voluntary basis (this can
not apply to partner authorities or the responsible local authority)
4.29 This memorandum relating to the LAA must be published whenever a target is
designated, changed, added or removed.
4.30 Local authorities and their partners should view the LAA memorandum as an
opportunity to present to local citizens a clear statement of how the partners are
going to tackle and measure progress against the identified targets. They should
therefore, as a matter of good practice, go beyond the statutory requirements set out
above to ensure that:
• the LAA is published in a way that clearly links it to community priorities and the
area’s Sustainable Community Strategy and other key local plans
• the LAA is publicly available and communicated actively and in an accessible way
throughout its life
• that progress in delivering the targets is clearly communicated to citizens
Acting in accordance with these principles will provide a clear way in which the local
authority can demonstrate it is acting to discharge the duty to consult, inform and
involve (see paragraphs 2.10 to 2.27 for more details).
Section 5
Agreeing the priority outcomes for an
area – the role of local partners
Partners and their role in shaping their locality

5.1 This chapter is intended for all partners interested in cooperating with local
authorities and being involved in shaping their locality, including:
• partner authorities subject to the statutory duty to cooperate

• other public bodies
• local businesses and third sector organisations
5.2 Working in partnership will bring considerable benefits to partners who have an

interest in improving the wellbeing of local communities. Coordinated planning
and delivery will lead to better outcomes for communities and greater efficiencies
for partners. Partners should therefore seek to use the framework set out in this
guidance to:
• cooperate with local authorities and other partners through the LSP
• influence the shape of the SCS and LAA
• agree where appropriate to help deliver LAA targets
5.3 This chapter deals firstly with the expectations on bodies subject to the duty to
cooperate to determine targets and secondly with the opportunities available to
bodies that wish to take part on a voluntarily basis. However, this chapter should not
be read in isolation, as it encompasses only one element of a process of partnership
working explained throughout this guidance.
Section 5 Agreeing the priority outcomes for an area – the role of local partners 43
Statutory ‘partner authorities’ and the duty to cooperate to

agree targets
5.4 This section relates to the following list of bodies and persons, which are defined in
the Act as partner authorities:
Arts Council Museums, Libraries and Archives

The Broads Authority Council
Chief Officer of Police National Park Authorities
District authorities Natural England
English Heritage NHS Foundation Trusts
The Environment Agency NHS Health Trusts
Fire and rescue authorities Police authorities
Health and Safety Executive Primary Care Trusts
The Highways Agency Local Probation Boards; Probation
Jobcentre Plus Trusts and other providers of probation
services
Joint Waste Authorities
Regional Development Agencies
Joint Waste Disposal Authorities
Sport England
The Learning and Skills Council in
England Transport for London
Metropolitan Passenger Transport Youth Offending Teams
Authorities Any other organisations added by an
order under section 104(7) of the Act or
by primary legislation
5.5 The Act is clear that these bodies and persons must be involved in helping to
determine any target in the draft Local Area Agreement which will relate to it and in
doing so must cooperate with the responsible local authority and have regard to this
guidance.
What constitutes cooperation?

5.6 The type of involvement that is appropriate is likely to differ depending on the body
in question and the characteristics of the locality; therefore the details will need to
be agreed between partners at the local level before the negotiation begins. Existing
partnership structures may be sufficient or may need to be adapted to meet the
requirements of the duty eg the LSP or relevant sub-partnerships could agree to
meet more regularly in the run up to submitting their draft LAA. However, it may
be that partner authorities are not currently part of these lines of engagement and
need to review their existing partnership arrangements. In either case, the following
standards are expected of partner authorities:
• cooperation should take place through the LSP framework (this can be through
the district LSP where that is appropriate) rather than just between individual
partner authorities and their responsible local authority. This is because the
majority of LAA targets are expected to be cross-cutting, therefore meaningful
cooperation can only occur if all relevant partners are represented during
negotiations. This should not prevent partners from conducting a portion of their
deliberations through partnership arrangements at other spatial tiers where this
might add to the wider negotiation of the full LSP
• staff with sufficient authority should be involved in negotiations. Partner
authorities will only be able to cooperate effectively if representatives at
negotiations are able to take key decisions and make commitments on behalf of
their organisation
• cooperation should be a continuous process of planned engagement rather than
a one-off event – partner authorities are expected to continue to be involved or
even to lead in determining the implementation arrangements for the LAA and
the monitoring of progress against targets
• the duty to cooperate applies to all local improvement targets in the draft LAA,
not just for those which are likely to become designated by the Secretary of State
Other partners – consultation and cooperation

5.7 This section is for partners who are not named in the Act as statutory partner
authorities, but who nevertheless wish to participate in the preparation and delivery
of LAA targets.
5.8 Under the terms of the Act, each responsible local authority must consult such other
persons as appear to it to be appropriate in addition to the list of partner authorities.
This is a broad definition intended to cover a wide range of partners, examples
of whom are listed at paragraph 4.8. These partners are encouraged to feed into
negotiations and where possible, to sign-up to targets which are relevant to them.
Where applicable, partners should seek to observe the standards set out in paragraph
5.6; be aware of the arrangements for signing up to targets in 5.12 and what signing
up to a target might mean in practice at 6.2.
5.9 Where partners wish to participate in the negotiation of LAA targets but have not
been invited to do so by the responsible local authority, they should inform the
responsible local authority and/or any relevant partner authority at the earliest
opportunity that they wish to be involved. It is for the responsible local authority
to ensure in so far as possible, that all partners have an opportunity to influence
decision-making and delivery and to do so where possible through the LSP
framework (see the section on the duty to consult in section 2 and the section on the
key principles for the governance of an LSP at paragraph 2.7).
Section 5 Agreeing the priority outcomes for an area – the role of local partners 45
Which targets ‘relate’ to each partner?

5.10 This section is for the consideration of all partners, whether or not they are partner
authorities. The Act requires that when the draft LAA is submitted to the Secretary
of State, it must specify for each local improvement target, which persons the target
‘relates’ to. This means that it must be clear who has signed up to help deliver each
target.
5.11 The Act allows partners to decide for themselves which targets in the draft LAA will
relate to them, but in doing so, they should consider all targets to whose attainment
they could contribute. In practice this may include targets that are not immediately
obvious or part of that partner’s core business, but where signing up to that target
assists other partners in meeting a key local objective.
How will consultation and cooperation be monitored?

5.12 It will be for local partners to agree among themselves what level of consultation
and cooperation is appropriate for the agreeing of priorities in the LAA, but
in recommending to the Secretary of State that a draft LAA is approved, the
Government Office will wish to be in a position to say that within reason, all partners
and consultees were given an adequate opportunity to influence the setting of
priorities. The Government Office will also wish to be in a position to say that the
statutory partner authorities have taken their responsibilities seriously both in
negotiating and signing up to targets.
Chapter 6
Delivering priorities for the area
The overarching role of the Local Strategic Partnership (LSP)

6.1 Section 2 explained that it is the role of LSPs and their thematic partnerships to
collectively shape and steer the strategic commissioning of local services across their
locality, turning the long term vision set out in the Sustainable Community Strategy
and Local Area Agreements (LAAs) into reality. An effective approach to delivering
this shared vision includes:
• cooperation taking place through the LSP framework as part of a continuous

process of planned engagement rather than a one-off event
• establishing a shared understanding of the totality of resources that local
partners can bring to bear with a view to increasing the efficient and effective use
of those resources
• sharing information and identifying what works and what does not in terms of
service provision
• exploiting opportunities for the joint strategic commissioning of services,
economies of scale and bringing together different services
• creatively stimulating delivery capacity from all partners (including through
market shaping)
• performance management of progress against LAA targets
The practical implications of ‘having regard’ to local

improvement targets in the exercise of functions
6.2 Responsible local authorities and partner authorities are required to ‘have regard’ to
all those targets which then ‘relate’ to them. This requirement operates for all LAA
targets, not just those that have been designated. In order to fulfil this requirement,
responsible local authorities and partner authorities are expected to be able to
demonstrate how they are effectively planning for the implementation of their
contribution to the achievement of those targets to which they have signed up.
More specifically we will expect:
Chapter 6 Delivering priorities for the area 47
• responsible and partner authorities to clearly establish the link/s between all local
improvement targets that relate to them in their relevant business planning and
performance management processes
• that relevant LAA targets will be clearly but proportionately reflected within each
individual partner authority’s local regional or sub-regional resource allocation.
• that the staff of responsible and partner authorities are made aware of any
pertinent LAA priorities and where appropriate that these are reflected in the
setting of senior staff performance management objectives
• partners to work through the LSP board and its thematic partnerships to
collectively oversee progress towards delivery against all targets in the LAA based
on existing data and information provided by individual partners
There will be roles in monitoring performance against LAA targets for the
Government Office, the various inspectorates (through the Comprehensive Area
Assessment) and local Overview and Scrutiny Committees. Information on these
roles will be available separately on a non-statutory basis as necessary.
Data sharing
Data-sharing will also be an important element to partnership working and is
critical for achieving success in initially setting the right targets (ie ones which
address the real needs of the area and are realistic but challenging), ensuring
they continue to be the right targets and checking progress against their delivery.
Initially, responsible authorities and partner authorities should ask themselves:
• does the purpose for sharing information directly relate to the setting,
monitoring or achievement of one or more local improvement targets?
• is it explicitly prohibited in other legislation?
• are there explicit limitations and restrictions in other legislation?
If the answer to the first question is ‘Yes’ and to the next questions ‘No’, then LAA
partners can continue with the proposed action subject to the third question. The
Data Protection Act 1998 applies limitations to the use and sharing of personal
data but it does not prohibit the sharing and use of personal or anonymised
information as a general rule. Local authorities should have regard to this
guidance and to other guidance produced by the Government on the sharing
and use of information.
Partners who have voluntarily agreed to help deliver a local

improvement target
6.3 Not all partners who have agreed to help deliver a LAA target will be subject to the
duty to have regard, as they will neither be responsible local authorities or partner
authorities (see paragraph 5.8). These partners, who may be from the business or
third sectors are nevertheless encouraged to play a full part in delivering targets
that are relevant to them and to which they have signed up. In many cases, the
means of supporting delivery of individual LAA targets by business and third sector
organisations will be achieved through their contractual obligations with partner
authorities.
Securing positive outcomes and best value through

commissioning
6.4 Local authorities and other best value authorities34 are under a general duty of best
value35 to “make arrangements to secure continuous improvement in the way
in which its functions are exercised, having regard to a combination of economy,
efficiency and effectiveness.” The duty of best value remains at the heart of the new
performance framework, although the requirements to produce annual Best Value
Performance Plans and conduct Best Value reviews have been removed.
6.5 To fulfil the duty of best value, authorities should seek to achieve a balance between
potentially, but not necessarily, competing objectives in particular:
• responding to the needs of all sections of the community including those groups
with complex or specialist needs
• seeking to address the whole-life costs of decisions, focusing on early
intervention and achieving sustainable outcomes
• exploiting economies of scale
• achieving locally-responsive services
6.6 Achieving the right balance will require – as set out in section 2 on the duty to
involve – appropriate consultation and involvement (ideally led by elected members)
with representatives of local people including potentially the local authority’s own
workforce, and – where there is an impact upon LAAs – also require consultation
with the relevant partner authorities.
A local authority; a National Parks authority; the Broads Authority; police and fires authorities, the London Fire and Emergency
34
Planning Authority; a Waste Disposal Authority, Joint Waste Authority, a metropolitan county passenger transport authority;
Transport for London; the London Development Agency. See Section 1 of the Local Government Act 1999.
Section 3 of the Local Government Act 1999.
35
The commissioning role of local authorities

6.7 Local authorities will generally be better able to meet their best value duty by
adopting a commissioning role. A commissioning role is one in which the authority
seeks to secure the best outcomes for their local communities by making use of all
available resources – without regard for whether services are provided in-house,
externally or through various forms of partnership. Commissioning involves:
• user and community engagement and needs analysis

• strategically planning for services which deliver sustainable outcomes
• implementing plans, shaping markets, securing services and outcomes
• monitoring the delivery of outcomes, evaluating and challenging services
6.8 If done well this will enable local authorities to:
• seek opportunities for joint commissioning across local statutory bodies and
thereby secure a more efficient use of resources
• focus on understanding what communities need, and so to challenge existing
service provision
• avoid silos, and be creative in seeking opportunities to achieve cross-cutting
objectives through mainstream services
Putting people and places at the heart of commissioning

6.9 Earlier sections of this guidance have set out the ways in which local authorities
should seek to involve service users and local communities; such an approach is
relevant throughout the commissioning cycle.36 Increasingly, such involvement
should deepen to the extent that local users of services and communities become co-
producers of the services and outcomes they want to see. There are a range of ways
authorities could seek to achieve this co-production, these include:
• actively involving service users and the wider community at each stage of the
commissioning cycle – assessing needs, establishing priorities, designing services
and reviewing performance
• exploring with communities how services can be varied or targeted so that they
are responsive to different interests
• locating commissioning decisions closer to communities for example through
parish and town councils
Gather and analyse intelligence on need, supply and resources; establish priorities and service options; engage capacity to deliver and
36
secure services; monitor, review, improve/decommission.

• devolving aspects of the commissioning role through for example personal and
participatory budgets
• active participation in the day-to-day delivery of services
Authorities should also involve front-line staff in the commissioning of services,
making use of their commitment and expertise
A mixed economy of service delivery

6.10 Local authorities should recognise and embrace diversity in the way services are
provided, with the focus on desired outcomes and not on whether the service is
delivered by the public, private or the third sectors. The range of delivery mechanisms
include:
• joint working with other statutory bodies

• partnerships or grants with the local business and third sector
• co-production with service users and communities of interest and place
• developing and shaping local markets
• contracting with providers in the public, private and third sectors
• securing services through service level agreements with an in-house provider
6.11 While local authorities have discretion over how individual services are to be
provided, best value is more likely to be achieved where there is a positive approach
to achieving a mixed economy, rather than where any one supplier dominates the
provision of services in an area. Developing choices requires a sound knowledge
of the available sources of supply and the capabilities of service providers. Local
authorities have a key role to play in shaping the local public service markets through
dialogue and procurement to stimulate providers to develop innovative solutions.
Fair and open competition

6.12 Local authorities should represent the interests of citizens, service users, and their
communities by:
• ensuring decisions about using public money are based upon an objective
assessment and accurate information
• taking steps necessary to avoid conflicts of interest for example, when
determining the way in which to award a contract when their own organisation
is in competition for the right to run a service through a public procurement
• adopting practices that are fair and open ie neutral between different types of
providers and transparent on pricing (including in cases where they are operating
in direct competition in a local market)
• ensuring that any procurement decision, including retaining services in-house, is
undertaken and justified in an open and transparent way regardless of whether a
full European Union (EU) Procurement exercise is involved
6.13 Local authorities need to understand and manage the cost effectiveness of each
part of their delivery chain where public resources have been invested, whatever
the formal arrangements for the management of that service might be, so as to
ensure best value. Local authorities, for their own services (including those externally
provided) should:
• regularly and rigorously assess and review the competitiveness of those services
against similar services provided by other statutory bodies, local authorities or
other service providers
• where these services are found to be under-performing in comparison with
others they should revaluate the need and priorities for that service
• where service improvement is unlikely to be forthcoming within a reasonable
period of time or unlikely to match what could be provided by alternative
providers, local authorities should seek new supply arrangements through,
wherever practicable, fair and open competition
6.14 Championing the needs of their communities requires local authorities to be

clear about their role as both commissioner of services in the interest of the
community and as a provider of some of those services. Whatever the organisational
arrangements put in place there should be in all cases clear mechanisms for
commissioners to hold in-house provider functions to account for delivery.
Incentivising providers and sustainable funding

6.15 In taking a long term sustainable perspective on best value, local authorities will
need to consider appropriate measures to support and incentivise service providers,
including in-house teams and partners. Such measures are likely to include
linking payments to performance outcomes – especially the achievement of user
satisfaction. Where possible, local authorities should look to provide longer-term
stability of funding and contracting to enable more efficient planning by service
providers, regardless of their sector.
6.16 Local authorities should be sensitive towards the capacity of both small and medium
enterprises and their counterparts in the third sector, and work to establish a range
of practical measures which will maximise their capacity to deliver community
outcomes. Grants, alongside contracts, have a crucial role and should be used where
they are more appropriate, particularly when building the capacity of partners,
piloting new approaches to services and outcomes and in investing specific projects
led by other partners. While there is a role for short-term grants for example in
promoting new community-based organisations the starting point, subject to overall
affordability and purpose, should be three years (or more). Though in all cases, the
particular conditions attached to payments, incentives or to length of contract or
grants should be determined according to the duty to achieve best value.
Delivering the right outcomes over time

6.17 To achieve the right outcomes for people and places, there needs to be timely
monitoring, review and measurement of progress against targets. As stated in
section 2, LSPs collectively will need to review progress against the priorities agreed
– to assess whether the activities undertaken by their members have resulted in the
desired outcomes and where this is not the case, steer the appropriate changes to
plans and interventions. The views of local communities themselves will of course be
central to assessing if desired outcomes have been delivered and/or whether or not
there needs to be a change in focus.
Annex 1 Sustainable Communities Act 2007 Statutory Guidance 53
Annex 1
Sustainable Communities Act 2007
Statutory Guidance
Guidance for proposals by local authorities
The context
1. The Sustainable Communities Act 200737 (‘the Act’) introduces a new procedure for
local authorities to make proposals to the Secretary of State that they believe would
contribute to promoting the sustainability of their local communities. In the Act,
references to promoting the sustainability of their local communities are references
to encouraging the economic, social or environmental well-being of the authority’s
area or part of its area, including participation in civic and political activity. Panels of
representatives (‘panels’) are an important part of this procedure. Local authorities
must establish or recognise a panel and consult it before making any proposals.
2. The procedure for making proposals under the Act needs to be seen in the wider
context of the fundamentally changed relationship between central government
and local authorities and their partners introduced in the Local Government White
Paper 200638, the Local Government and Public Involvement in Health Act 200739,
the Central Local Concordat40 agreed in December 2007 and the main body of this
guidance.
3. This guidance is published as an annex to Creating Strong, Safe and Prosperous

Communities Statutory Guidance as both sets of guidance relate to the new
relationship between central government and local government and its partners
and both have the overarching aim of encouraging more sustainable communities.
However, this annex is specific to the Sustainable Communities Act 2007. Further
information on the Sustainable Communities Act can be found in The Sustainable
Communities Act: A Guide41.
http://www.opsi.gov.uk/acts/acts2007/ukpga_20070023_en_1
37
http://www.communities.gov.uk/publications/localgovernment/strongprosperous
38
http://www.opsi.gov.uk/acts/acts2007/ukpga_20070028_en_1
39
http://www.communities.gov.uk/publications/localgovernment/centrallocalconcordat
40
http://www.communities.gov.uk/publications/localgovernment/sustainablecommunitiesact
41
4. This document contains guidance about certain aspects of the procedure for local
authorities to make proposals to the Secretary of State. In particular, in accordance
with section 5(5)(a) of the Act guidance is given about the inclusion of persons from
under-represented groups in panels.
5. Local authorities will also want to consult parish councils in their area.
6. The first invitation to make proposals must be made by 23 October 2008. Further
information on the process to be followed will be published alongside the invitation.
7. The regulations42 to accompany this Act include further details of the procedure to be
followed by local authorities.
Inclusion of persons from under-represented groups

8. The intention behind section 5(5)(a) of the Act is to ensure that representatives
of persons from under-represented groups are included on panels. This guidance
describes the reasonable steps that local authorities should take to do so.
9. Following the principle that local authorities are best placed to know which groups
are under-represented in their area and how best to engage them, this guidance does
not prescribe which groups should be included, how panels should be constituted or
how many panels a local authority may choose to establish or recognise.
10. In order to ensure that they have taken reasonable steps to identify and include
representatives from under-represented groups local authorities should, if they are
establishing a new panel:
• identify communities of interest in their area and ensure that people who are
broadly representative of these groups are invited to join the panel
• work with council colleagues, third sector representative groups and other
agencies providing services to individuals and groups to take a view on which
communities of interest may be underrepresented in civic and political activity,
in particular those who are hardest to reach, and invite people who are
representative of these communities to join the panel
Subject to Parliamentary approval

42
Annex 1 Sustainable Communities Act 2007 Statutory Guidance 55
• take a view, once the panel is established, as to whether under-represented

groups are sufficiently represented. Local authorities may establish their own
criteria to determine whether or not this is the case. For example, subject to
sufficient willing representatives being available, they may notionally allocate a
certain number of places on the panel to people who represent the interests of
under-represented groups. Alternatively, provided there are willing representatives
they may identify particular under-represented groups that they believe ought to
be represented in their own right on the panel
11. Local authorities may choose to recognise an existing panel or panels rather than
establish a new panel. If they do so, then they will need to take the same steps as
described above to ensure that they have taken reasonable steps to identify and
include representatives from under-represented groups.
12. Local authorities may also choose to establish or to recognise more than one panel.
Again, if they do so, then they will need to take the same steps as described above to
ensure that they have taken reasonable steps to identify and include representatives
from under-represented groups.
Definitions
13. “Local person”43 refers to those likely to be affected by, or interested in, a particular
proposal. It should be noted that the term “local persons” is not simply a reference
to local residents. It also covers those who work or study in the area (including
those who work for the authority); visitors; service users; local third sector groups;
businesses; bodies such as parish councils; and anyone else likely to be affected by, or
interested in, the proposal.
14. “Panel”44 means a panel constituted in accordance with the regulations required
under section 5(1). The Act requires local authorities before making any proposal to
establish or recognise a panel of representatives of local persons and consult it about
the proposal.
15. While the Act requires local authorities to establish or recognise a panel, it does not
prescribe the number of panels, the make-up of panels or the way in which local
authorities must consult their panels. This is because circumstances vary between
each area and local authorities are best placed to determine how to engage local
people.

43

44
16. In many cases local authorities will already have established panels which meet the
requirements of the Act. Most local authorities already consult panels of local people
to help identify and shape their priorities. In addition, the new “duty to involve”,
in section 138 of the Local Government and Public Involvement in Health Act
2007 requires authorities to take those steps they consider appropriate to involve
representatives of local persons in the exercise of any of their functions, where they
consider it appropriate to do so.
17. There are a range of existing requirements on authorities to engage with users or
citizens, including the new “duty to involve”. The requirement to consult panels does
not replace these existing requirements. Instead, it needs to be considered alongside
them, ie authorities need to determine how best to ensure that they engage local
people in a consistent, coherent and effective way. This may well mean, for example,
that when a local authority consults local people on the development of its Sustainable
Community Strategy it may also consult about proposals to be made under the Act.
18. For the purposes of this Act, “representatives of local persons”45 means, a
balanced selection of the individuals, groups or organisations the authority considers
likely to be affected by, or have an interest in the proposal. In this context, the term
“representative” does not refer to formally elected or nominated members of the
community. Councillors, and other elected members of the community, have a key
role as advocates representing the concerns and wishes of the community. The
consideration of proposals under the SCA seeks to build on this by increasing the
range of opportunities available for local persons to have their say and get involved
directly.
19. “Under-represented groups”46 means, in relation to a local authority, those groups

of local persons who in the opinion of the local authority are under-represented
in civic and political activity in the authority’s area. This definition recognises that
people may be under-represented because they are part of a group within society
which is under-represented in civic and political activity or because their personal
circumstances. Ensuring that local authorities seek the views of such people is one
way to remedy their under-representation.
20. We recognise that many authorities are well aware of the need to engage a diverse
range of groups within the community. This will vary in each area, and it is for local
authorities to determine which people are under-represented in their area. It is
particularly important that in establishing or recognising panels, local authorities
include representatives from those parts of the community which are hardest to reach.

45

46
ISBN 978-1409802433
ISBN: 978-1-4098-0243-3 9 781409 802433

Creating Strong, Safe and Prosperous Communities: Statutory Guidance

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Creating Strong, Safe and Prosperous Communities

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If you require this publication in an alternative format please email alternativeformats@communities.gsi.gov.uk

Communities and Local Government Publications

Ref No.: 08LGSR05402/SPC

Section 1: Creating strong, safe and prosperous communities 11

Section 2: Governance and engagement 15

Section 3: Establishing a vision for the area 26

Section 4: Agreeing priorities for an area 34

Section 6: Delivering priorities for the area 46

Annex 1: Sustainable Communities Act 2007 Statutory Guidance 53

Schedule for introduction of legislation

Foreword by Rt Hon Hazel Blears MP,

Scope of the Guidance

Paragraphs 2.2 to 2.9 contains non-statutory guidance (except as it relates to the

• paragraphs 28 to 31 and Annex C (Handling of Workforce Matters in Contracting) and

Except Police Authorities – see para 2.12

Glossary of legislative terms used in the guidance

Common Council of the City of London

• a responsibility on councils to provide strategic and political leadership and

1.3 Central government recognises that a tailored approach to improvement needs to

Delivering the Community Leadership vision

Ministry of Justice (2007) Governance of Britain

Government and Public Involvement in Health Act 2007

Figure 1: Summary of relationship between Sustainable Community Strategy

Local Strategic Partnerships

The role of the LSP

• Exercise a leadership and governing role through identifying and articulating

• Have oversight of the planning and alignment of resources in the locality

Strengthening democratic accountability – the leadership role for local

i. L eadership: executive members in particular have a vital role in leading LSPs

Strengthening democratic accountability – the leadership role for local

LSP governance and accountability between partners and to

v. The representatives need to be able to take account of all of the community

County and district LSPs

The relationship between the LSP and the thematic partnerships

• providing the LSP with sufficient information to make decisions

Community Empowerment – the duty to involve

2.13 There is already a range of existing requirements such as statutory requirements

local Government Devolves, and Why, LGA / Young Foundation/IDeA, 2006.

Improving delivery in mainstream services in deprived areas ñ the role of community

That is all of an authority’s powers and duties.

What does the new duty to involve require?

• providing information about the exercise of the particular function

What do we mean by “representatives of local persons”?

The phrase “representatives of local persons” refers to a mix of ”local persons”, ie a

What does this mean for elected representatives?

2.18 Authorities should offer representatives of local persons appropriate opportunities to

2.19 Authorities should consider where it is appropriate to provide representatives of

• influence or directly participate in decision making (eg in helping to

• provide feedback on decisions, services, policies and outcomes (eg ‘have

The role of information provision in consultation and involvement

The importance of feedback

For practical information on involving people see www.peopleandparticipation.net.

Applying the duty

2.21 In meeting this duty, authorities should consider:

• privacy: representatives of local persons should not be involved in individuals’

Who should be informed, consulted and/or involved?

Section 1: Creating strong, safe and prosperous communities 11

Section 2: Governance and engagement 15

Section 3: Establishing a vision for the area 26

Section 4: Agreeing priorities for an area 34

Section 6: Delivering priorities for the area 46

Annex 1: Sustainable Communities Act 2007 Statutory Guidance 53

i. L eadership: executive members in particular have a vital role in leading LSPs