Under Pressure: The Future of Councillor-Officer Relationships - New Report

A new report by APSE has delved into the dynamics behind the working relationships of councillors and officers.

The traditional role of political leaders setting direction and policy, with senior local government officers presenting the operational solutions to implementation, has, in many cases, transformed into much more nuanced, and on occasions, strained relationships. Whilst there remains an overriding respect for each other’s roles, the confines of resource limitations, and regulatory duties, which govern how that political vision can be turned into a legitimate reality, can test the parameters of this traditional arrangement.

Studies in this field are therefore vital; exploring these relationships which influence decision-making, the implementation of policies, and how well local government delivers for its citizens. This research was carried out by a team from Staffordshire University, Birmingham University, Essex University, Leeds Beckett University and the University of Urbino Carlo Bo. It draws on the results of a Q-method study design to map and analyse different viewpoints on a particular issue, as well as conversations with councillors and officers from across local government, notably through two detailed case studies: Swansea and Lancaster Councils.

The report’s findings confirmed the continued resonance across authorities of the traditional division of labour between councillors and officers, that of ‘councillors decide, officer implement’. 

Speaking about the report, Mo Baines, APSE Chief Executive said, “Overall, the research finds that the status quo of member-officer relations is still respected and followed, despite growing external pressures such as austerity.

The research finds that there remains general agreement that officers and members both bring complementary traits to decision-making processes, along with an understanding it is the officers' duty to give professional advice to councillors. However, some areas of knowledge, understanding and behaviour were contested by the participants and additionally, the financial issues facing local authorities can stoke such tensions.

Baines added, “The spectre of Section 114 notices was identified as a potential flashpoint for future officer-member tensions, and this is hardly surprising given the relentless pressures on local government resources”.

Recommendations to emerge from the research suggest that to strengthen the officer-member relationship, political leaders need to communicate a clear strategic direction to officers, ensure regular meetings between both groups to discuss expected behaviours and values, a ‘no surprises’ policy whereby officers inform councillors about potential challenges in any decision, and a review of induction programmes to ensure behaviour expectations are clear.

Professor Steven Griggs commented, “This new report concludes that while most officers and councillors display allegiance to the ‘politicians decide, officers implement’ mantra – the realities of these relationship vary, and the sector risks missing out on the benefits of new working practices and positive change by ignoring dissenting voices. Constructive challenge is good for democracy and in an ever changing local government world having the confidence to explore the pressures of the working relationships between council and officer leaderships role is essential to the functioning of local councils.”   

The report will be launched in full at an online roundtable - free for APSE members - on Wednesday 13 December at 2pm.

Click here to book a place.

Download the report

Notes to editors

The research was commissioned by APSE (Association for Public Service Excellence). The report authors are Neil Barnett, Leeds Beckett University; Arianna Giovannini, University of Urbino Carlo Bo; Steven Griggs, Staffordshire University; David Howarth, University of Essex; Stephen Jeffares, University of Birmingham and Craig Love, University of Essex.