Models of devolved delivery for museums, libraries & archives

1. Models of devolved delivery for museums, libraries & archives ……………………………………. June, 2010 …………………………………………………………………………………………………………........ The devolution opportunity for museums, libraries & archives Jo Woolley

2. 1. Context • What & why Structure of discussion 2. Comparative assessment 3 models of devolution 3. Final thoughts 02 ……………………………………. Tuesday, 27th July, 2010 …………………………………………………………………………………………………………........ The devolution opportunity for museums, libraries & archives Jo Woolley

3. 1.1 Context: what is it? (1/5) What is devolution? What does it look like? • Traditionally single service charities • But scenario now varying with new emergent models: • Merging of specialised services • Northumberland Museum & Archive • Sport & Culture Glasgow • Merging of boundaries • Greenwich Leisure • Merging with the third sector • Salford Museum • Devolution is the transfer of strategic and financial control • over its services • from local authority to a separate organisation: • A charity or trust (philanthropic) • A private sector company (investment) • A new or existing social business (enterprise) ……………………………………. July, 2010 …………………………………………………………………………………………………………........ The devolution opportunity for museums, libraries & archives Jo Woolley

4. 1.2 Context: why explore it? (2/5) Why devolve? • To gain savings • To keep services open in communities threatened with closure • To make it easier to fundraise – people don’t give to councils • To gain increased independence – external bodies have stronger voices • To gain increased expertise / skills – plug capacity gaps • To embed a different culture • To become sustainable & vary sources of support ……………………………………. July, 2010 …………………………………………………………………………………………………………........ The devolution opportunity for museums, libraries & archives Jo Woolley

5. 1.3 Why devolve?: becoming sustainable (3/5) Efficiencies Assets Earning • Asset transfer • Building & land • collections • Endowment • Strategic commissioning • Entrepreneurialism • Admissions & consumer charges • Philanthropy & gift aid • Fiscal exemptions • NNDR • VAT • Low operating cost • centralising costs • sharing resources • pay and pensions • volunteers • restructuring ……………………………………. July, 2010 …………………………………………………………………………………………………………........ The devolution opportunity for museums, libraries & archives Jo Woolley

6. 1.4 Why devolve: social change (4/5) • Charitable delivery for public benefit • Community delivery • Staff ownership • Private sector partnerships • Economic regeneration • Community empowerment • Big Society ……………………………………. July, 2010 …………………………………………………………………………………………………………........ The devolution opportunity for museums, libraries & archives Jo Woolley

7. 1.5 Devolution: the real opportunity (5/5) Social change Financial change • Economic regeneration • Community and Big Society • As well as state delivery: • Charity delivery • Community delivery • Staff ownership • Private sector partnerships • Achieving more… • Managing cuts to budgets & resources • Making savings • Economies of scale • Merging with cultural services • Merging across boundaries • Integration with third sector • … with less ……………………………………. July, 2010 …………………………………………………………………………………………………………........ The devolution opportunity for museums, libraries & archives Jo Woolley

8. Structure of discussion • 1. Context • What & why 2. Comparative assessment A charity or trust (philanthropic) A private sector company (investment) A new or existing social business (enterprise) 3. Final thoughts 08 ……………………………………. Tuesday, 27th July, 2010 …………………………………………………………………………………………………………........ The devolution opportunity for museums, libraries & archives Jo Woolley

9. 2.1 Philanthropic: applicability of format (1/2) • Charity or trust • Most common devolution format • 120 charitable leisure trusts devolved from direct delivery (sports) • 2006 museums survey: 76% councils delivered directly, 8% trusts Fundamentals • Charities can create complex governance structures to exploit full market opportunity, scale up & grow • - Charities are eligible for all public and private grants • - Charities can trade and enter into business partnerships • Supports single services because protects asset transfer • Charities can benefit from the most tax exemptions of all models • - NNDR relief not exclusive to charities and a gift of Treasury Key strengths …………………………………………………………………………………………………………........ The devolution opportunity for museums, libraries & archives Jo Woolley ……………………………………. July, 2010

10. 2.1 Philanthropic: managing risk (2/2) • Competition: UK cultural sector earns lots from fundraising • Fundraising traditionally low for regional mlas • Philanthropy is not ‘free’ • market becoming more competitive • Statutory right to ‘free’ service models makes it a big culture change Key risk • More single services charities, the greater likelihood of growth slowing • Growth requires enterprise activity and investment partnerships • Model offers least versatility for partnerships at board level & the limited accountability can compromise board excellence • Organisational stresses - grant funding can stress capacity for market responsiveness, trading subsidiaries need strategic integration • Most devolved cultural services yet to exploit fundraising and gift aid • - if not prepared to ask for donations why become a charity? Other risks ……………………………………. July, 2010 …………………………………………………………………………………………………………........ The devolution opportunity for museums, libraries & archives Jo Woolley

11. 2.2 Investment: applicability of format (1/2) • Models that contract or partner private sector – for profit • Second most common form of devolution • >1% museums in 2006 and two library services Fundamentals • Partnership working – particularly applicable to joint services • Probability of greater or speedier market responsiveness • Associated with efficiency - and delivers - but not unique to model • 1997-2007 public sector productivity declined by 3.4% • against a private sector rise of 27.9% Key strengths • Unique capacity for significant investment to restore deteriorating assets • Guarantee long term, year on year funding or budget projections …………………………………………………………………………………………………………........ The devolution opportunity for museums, libraries & archives Jo Woolley ……………………………………. July, 2010

12. 2.2 Investment: managing risk (2/2) Key risk • Primary focus of investment models will be to achieve efficiency • - unless significant consumer demand influences service provision • Risk of creating virtual monopolies driving improved but homogenised services rather than ones determined by need (offset by contract) • Risk to integral service improvement & skills growth • - little incentive to embed key entrepreneurial and management skills Other risks • Apart from efficiency and investment it offers the least potential to exploit full range of income opportunity – • private benefit puts off philanthropy • greater challenges in asset transfer • Over time investment is likely to be offset by gross profit ……………………………………. July, 2010

13. 2.3 Community enterprise: applicability of format (1/2) Fundamentals • Delivery of cultural services by social enterprises – for ‘profit’ • Little sector take up but third sector growth area - as charities but also social enterprises, community or staff ownership models • Uniquely flexible governance formats for collaborative partnerships • Demonstrable efficiencies through low net operating margins but also- • Community & staff ownership linked to increased productivity with: • Less risk aversion than public sector (greater potential to innovate) • Greater entrepreneurialism than voluntary sector • Greater sense of mission than private sector Key benefits • Sound financial sustainability – attract philanthropy and investment • Asset development models can be used strategically to create economic impact within deprived areas ……………………………………. Tuesday, April 7, 2010 …………………………………………………………………………………………………………........ The devolution opportunity for museums, libraries & archives Jo Woolley

14. 2.3 Community enterprise: managing risk (2/2) • Transfer of assets – land, collections, building, money – for success • shared body of experience in assessing this area of risk – Quirk, DTA, Community Matters, BIG and ACF Key risk • Need for strong leadership to think laterally and opportunistically about income generation – capacity gap • Greater risk of staff reduction • Achieving diversity –sections of community or workforce can be excluded from participation (offset by good workforce policy) • Success requires earning a greater sum in profit than actual value of VAT and some NNDR savings • Challenge for the cultural sector in managing the compatibility of charged services with a free core service Other risks ……………………………………. July, 2010 …………………………………………………………………………………………………………........ The devolution opportunity for museums, libraries & archives Jo Woolley

15. 2. The devolution spectrum Devolution spectrum Philanthropic Enterprising Investment Charity Community business Cooperative/Mutual Private business Trusts * CIOs * CCLG*CCLS * IPS * CIC *CBT/CLT * CIC * CLG * LLP * CLS Characteristics Characteristics Characteristics : : Highly regulated Public benefit Fiscal exemptions Sector / policy / value driven Lightly/non regulated Private benefit Earning capacity Market driven Highly regulated Highly regulated Public benefit Public benefit Fiscal exemptions Fiscal exemptions Sector/policy/value driven Sector/policy/value driven …………………………………………………………………………………………………………........ The devolution opportunity for museums, libraries & archives Jo Woolley ……………………………………. July, 2010

16. Structure of discussion • 1. Context • What & why 2. Comparative assessment The devolution spectrum 3. Final thoughts 016 ……………………………………. Tuesday, 27th July, 2010 …………………………………………………………………………………………………………........ The devolution opportunity for museums, libraries & archives Jo Woolley

17. 3.1 Final thoughts: diversity of options Joint services Single services • Specialised charitable trust utilising philanthropy and asset exploitation • Specialised privatised business model investing in improvement • Community managed / owned model • Single service alliances through collaborative models such as cics • Conglomerate cultural services / leisure charitable trusts utilising admissions income and economies of scale • Private sector joint service delivery models investing in higher performance • Community land / benefit trusts responding to social need around education, economy, health ……………………………………. July, 2010 …………………………………………………………………………………………………………........ The devolution opportunity for museums, libraries & archives Jo Woolley

18. 3.2 Final thoughts: financial sustainability Efficiencies Assets Earning • Asset transfer • Building & land • collections • Endowment • Strategic commissioning • Entrepreneurialism • Admissions & consumer charges • Philanthropy & gift aid • Fiscal exemptions • NNDR • VAT • Low operating cost • centralising costs • sharing resources • pay and pensions • volunteers • restructuring ……………………………………. July, 2010 …………………………………………………………………………………………………………........ The devolution opportunity for museums, libraries & archives Jo Woolley

19. 3.3 Final thoughts: MLA can help Strategic analysis Practical guidance The Field Team • Practical advice and support • Your Field Team can advise with options appraisals around devolution • Strategically, Field Teams can help broker networks and relationships, and help develop collaborative working with the third and private sectors • The opportunity of devolved governance for museums libraries and archives • range of models applicable to museums, libraries and archives • assessment of strengths and weaknesses of each legal format • ‘best practice’ case studies • key areas of risk • An online resource available shortly including • A feasibility framework for developing trust options for museum services • A guide to the review process and legal transfer issues • Precedent legal documents to save replication costs from local authority to local authority • Regional workshops ……………………………………. July, 2010 …………………………………………………………………………………………………………........ The devolution opportunity for museums, libraries & archives Jo Woolley

20. There is more than one devolution model Devolution is a strategic response to more than one political imperative - sector improvement, economic recovery, Big Society. Different devolution models will support different outcomes. Selection should be based on local need and appropriateness rather than what has worked elsewhere. Final thoughts Devolution is an option open to any service With the right plan in place there is no reason to suppose that any service – single or joint, high or low performing, museum library or archive – could not successfully devolve. Any questions?

21. 3.2 Planning a model (1/2) Community owned Community owned Community owned Philanthropic Philanthropic Philanthropic Assets transferred Assets transferred Assets transferred Assets protected Assets protected Organisational strengths Organisational strengths Organisational strengths • • • Enables cross discipline working Enables cross discipline working Enables cross discipline working • • • Protects sector specialism Protects sector specialism Protects sector specialism • • • Empowers leadership & mission Empowers leadership & mission Empowers leadership & mission • • • Empowers leadership & mission Empowers leadership & mission Empowers leadership & mission • • • Highly flexible Highly flexible Highly flexible • • • Supports accreditation and standards Supports accreditation and standards Supports accreditation and standards Public benefit led Public benefit led • • • Applicable to single and joint services Applicable to single and joint services Applicable to single and joint services • • • Applicable to joint services Applicable to joint services Applicable to joint services Market strengths Market strengths Market strengths • • • Competitive Competitive Competitive • • • Drives collaboration & partnership Drives collaboration & partnership Drives collaboration & partnership Community management Community management Community management • • • Works with strategic commissioning Works with strategic commissioning Works with strategic commissioning • • • Private sector appeal Private sector appeal Private sector appeal • • • Can support community delivery Can support community delivery Can support community delivery • • • Highly market responsive Highly market responsive Highly market responsive Financial strengths Financial strengths Financial strengths • • • Supports enterprise Supports enterprise Supports enterprise • • • Supports philanthropy Supports philanthropy Supports philanthropy • • • Supports philanthropy Supports philanthropy Supports philanthropy • • • Supports investment Supports investment Supports investment • • • Supports enterprise Supports enterprise Supports enterprise • • • NNDR exemptions NNDR exemptions NNDR exemptions • • • Tax exemptions Tax exemptions Tax exemptions • • • High efficiency savings High efficiency savings High efficiency savings • • • Restricted reserves Restricted reserves Restricted reserves • • • Unrestricted reserves Unrestricted reserves Unrestricted reserves Secure funding stream BUT Secure funding stream BUT Secure funding stream BUT • • • Unsustainable Unsustainable Unsustainable • • • Inward investment Inward investment Inward investment • • • Short term annual funding Short term annual funding Short term annual funding • • • Long term budget Long term budget Long term budget • • • Inward investment driven Inward investment driven Inward investment driven • • • Profit driven Profit driven Profit driven • • • Inefficient Inefficient Inefficient • • • High efficiency savings High efficiency savings High efficiency savings • • • lacks economies of scale lacks economies of scale lacks economies of scale • • • Supports single service Supports single service Supports single service User focussed BUT: User focussed BUT: User focussed BUT: • • • Can support collaborations Can support collaborations Can support collaborations • • • Static model, limited growth prospects Static model, limited growth prospects Static model, limited growth prospects • • • Supports public private partnerships Supports public private partnerships Supports public private partnerships • • • Limited capacity for rapid response Limited capacity for rapid response Limited capacity for rapid response • • • Highly market responsive Highly market responsive Highly market responsive • • • Limited integration with other services/ Limited integration with other services/ Limited integration with other services/ • • • Directly accountable to govt Directly accountable to govt Directly accountable to govt local priorities local priorities local priorities - - - single service single service single service Private management Private management Private management Specialist, centralised accountability and often Specialist, centralised accountability and often Specialist, centralised accountability and often Policy led Policy led Policy led high standard BUT: high standard BUT: high standard BUT: • • • Protects sector specialism Protects sector specialism Protects sector specialism • • • Least productive Least productive Least productive • • • Supports fixed standards & delivery Supports fixed standards & delivery Supports fixed standards & delivery • • • Limited flex Limited flex Limited flex • • • Highly flexible Highly flexible Highly flexible • • • Lack of capacity Lack of capacity Lack of capacity ……………………………………. Tuesday, April 7, 2010 …………………………………………………………………………………………………………........ The devolution opportunity for museums, libraries & archives Jo Woolley Direct delivery Direct delivery Direct delivery Investment model Investment model Investment model Outcomes driven Outcomes driven Outcomes driven Performance driven Performance driven Performance driven

22. Appendix: Legal formats & their characteristics Charities Industrial Provident Society Community Interest Companies Community Benefit / Land Trusts Limited Liability Partnerships Companies Limited by Guarantee) NPDOs for public benefit CCLG CLG CIO UCO NPDOs or profit distributing • Community Benefit Society • Co-operative Business activity for community benefit • Limited by guarantee • Limited by share Defined by statute (H&R Act 2008) Democratic corporate body holding property for community. • Hybrid corporate body combining limited liability with advantageous tax characteristics and organisational flex • NPDO with restricted objects and prohibition on profit distribution but light touch regulation of Companies House Tax exemptions inc gift aid Trusted format Protected liability Asset lock Risk averse regulation Subsidiary structures • Charitable fiscal benefits • Model designed to generate income • Risk averse regulation • Can offer democratic governance • Eligible for grants, loan finance, unrestricted reserves; supports enterprise & income • Collaborative • Reliable regulation & asset lock • Board members paid = accountability • Access loan finance, mortgages, unrestricted reserves • Membership includes private & public sectors • Collaborative • Can assimilate other models but can’t be sold • Tax applied as partnership - only liable on member share • Unrestricted reserves • Supports public private ventures • Unlimited flex • NNDR savings and some VAT; some grants; unrestricted reserves • Flexible model for private sector partnership (group structure) • Directors paid • Can form CICs • High set up costs • Competitive rather than collaborative • Cumbersome administrative & regulatory structure • No tax benefits • Arguably limited philanthropy • Shareholders can change purpose – claw-back clauses • Democratic format could discourage scaling up geographically • Limitations on constitutional form they take • NO NNDR exemptions • Ineligible for grant/ social enterprise funding • No asset lock • Ineligible for much grant funding • Prohibition on profit distribution can reduce appeal • No asset locks Tax on enterprise No debt finance Limited reserves Competitive Board membership less accountable A LA in PPP able to use funding to lever philanthropy and claim gift aid • Cross--domain leisure & cultural services to earn revenue & decrease LA investment over time • Regeneration in deprived areas • Broker relationships between sectors • Empowering small / specialist services for full devolution • Furthering programme of asset transfer & participation • PFI opportunities - CLT own freehold • robust for private sector but flexible for social enterprise - PPP • Profits donated to claim gift aid • Could be useful ‘first step’ model as allows LA to retain control - and can transfer to other formats when ready