Greater Manchester Combined Authority

Greater Manchester Combined Authority
Greater Manchester within England
Type
Type	Combined authority of Greater Manchester
Houses	Unicameral
Term limits	None
History
Founded	1 April 2011
Preceded by	AGMA
Leadership
Mayor	Andy Burnham, Labour since 8 May 2017
Group Chief Executive	Caroline Simpson since June 2024
Deputy Mayor of Greater Manchester	Paul Dennett, Labour since 8 December 2021
Deputy Mayor for Safer and Stronger Communities	Kate Green, Labour since 9 January 2023
GMCA Managing Director	Andrew Lightfoot since June 2024
TfGM Managing Director	Steve Warrener since January 2024
GMFRS Chief Fire Officer	Dave Russel since September 2020
Structure
Seats	11 constituent members
Political groups	Labour (10)   Liberal Democrats (1)
Elections
Voting system	Indirect election (10 of 11 seats), directly elected mayor [1]
First election	4 May 2017
Last election	2 May 2024
Next election	4 May 2028
Meeting place
Tootal Buildings, 56 Oxford Street, Manchester M1 6EU [2]
Website
www.greatermanchester-ca.gov.uk

The Greater Manchester Combined Authority (GMCA) is a combined authority for Greater Manchester, England. It was established on 1 April 2011 and consists of 11 members: 10 indirectly elected members, each a directly elected councillor from one of the ten metropolitan boroughs that comprise Greater Manchester, together with the directly elected Mayor of Greater Manchester. The authority derives most of its powers from the Local Government Act 2000 and Local Democracy, Economic Development and Construction Act 2009, ^[3] and replaced a range of single-purpose joint boards and quangos to provide a formal administrative authority for Greater Manchester for the first time since the abolition of Greater Manchester County Council in 1986.

The planning policies of the GMCA were developed in the 2000s by the Association of Greater Manchester Authorities in the Greater Manchester Strategy. It is a strategic authority with powers over public transport, skills, housing, regeneration, waste management, carbon neutrality and planning permission. Functional executive bodies, such as Transport for Greater Manchester, are responsible for delivery of services in these areas. ^[3] The GMCA appoints a Chair and Vice-Chairs from among its ten executive members.

The costs of the GMCA that are reasonably attributable to the exercise of its functions relating to public transport, economic development and regeneration (and any start up costs) are met by its constituent councils. Such costs are funded by direct government grant and, as a precepting authority, with some money collected with local Council Tax apportioned between the constituent councils. ^[3]

History

Background

Further information: History of local government in England

Greater Manchester was created as a metropolitan county composed of ten metropolitan boroughs on 1 April 1974 as a result of the Local Government Act 1972. From its investiture through to 31 March 1986, the county had a two-tier system of local government; district councils shared power with Greater Manchester County Council. The county council was abolished in 1986 as a result of the Local Government Act 1985, effectively making the 10 metropolitan boroughs unitary authority areas. The Association of Greater Manchester Authorities (AGMA) was established in 1986 as a voluntary association to make representations and bids on behalf of Greater Manchester and continue to manage strategic public services that were delegated to it by the councils, such as public transport and waste management. In the late-2000s, AGMA began actively seeking a formal government structure for Greater Manchester under the appellation "Manchester City Region". ^[4]

Development and formation

Following a bid from AGMA highlighting the potential benefits in combatting the financial crisis of 2007–2008, it was announced in the 2009 United Kingdom Budget that Greater Manchester and the Leeds City Region would be awarded Statutory City Region Pilot status, allowing (if they desired) for their constituent district councils to pool resources and become statutory combined authorities with powers comparable to the Greater London Authority. ^[5] The aim of the pilot was to evaluate the contributions to economic growth and sustainable development by combined authorities. ^[6] The Local Democracy, Economic Development and Construction Act 2009, passed with reference to the 2009 United Kingdom Budget, enabled the creation of a combined authority for Greater Manchester with devolved powers on public transport, skills, housing, regeneration, waste management, carbon neutrality and planning permission, pending approval from the 10 councils. ^{[5] [7]}

Between late-2009 and February 2010, AGMA debated the constitution and functions of the new combined authority, including matters such as name, voting system and remit. ^[4] From February 2010 through to April 2010, the 10 metropolitan district councils were consulted for their recommendations before submission of their constitution to central government; changes included extra powers for controlling further education, additional provisions for scrutinising the authority, and swapping the draft name 'Manchester City Region Authority' (MCRA) for the 'Greater Manchester Combined Authority' (GMCA), a name approved by the Executive Board of AGMA. ^[4]

Consultations made with district councils in March 2010 recommended that all GMCA matters requiring a vote would be decided on via a majority rule system involving 10 members appointed from among the councillors of the 10 metropolitan boroughs (one representing each borough of Greater Manchester with each council also nominating one substitute) without the input of the UK's central government. The Transport for Greater Manchester Committee would be formed from a pool of 33 councillors allocated by council population, roughly one councillor for every 75,000 residents to scrutinise the running of the Transport for Greater Manchester Committee (Manchester has five councillors, Wigan and Stockport four, Bury two and all other Boroughs three). ^[5] The 10 district councils of Greater Manchester approved the creation of the GMCA on 29 March 2010, and submitted its final recommendations for its constitution to the Department for Communities and Local Government and the Department for Transport. On 31 March 2010, the then Communities Secretary John Denham approved the constitution and launched a 15-week public consultation on the draft bill together with the approved constitution. ^[8] The replacement of AGMA by the GMCA, was requested to take place from 1 April 2011. ^{[9] [10] [11]}

On 16 November 2010, the Department for Communities and Local Government announced that it had accepted the combined authority proposal and that an order to establish the GMCA would be laid before Parliament. ^[12] The Greater Manchester Combined Authority Order 2011, which formally established the combined authority, was made on 22 March 2011 and came into force on 1 April 2011. ^[13]

Schemes and strategies

Localism Act 2011

Following the passage of the Localism Act 2011 on 15 November 2011, the Department for Communities and Local Government began negotiating with groups of local councils for tailored deals to be included in the 2012 United Kingdom budget. ^[14] The GMCA sought provision for a further transfer of powers that would result in an additional delegation of authority from the UK's central government. This step-change would mean that, instead of the GMCA bidding for government funding on a project-by-project basis, it will receive a sum of money from government ministers and would be able to determine, locally, how it is used. ^[15] The UK Government is considering a further plan to allow passenger transport executives to raise local rail fares in their areas, and directly invest the money raised in infrastructure and rolling stock alongside the specification of additional or improved rail services. ^[16]

Greater Manchester City Deal

A "City Deal" for Greater Manchester was announced in March 2012 by the then Deputy Prime Minister Nick Clegg and Cities Minister Greg Clark. ^{[17] [18]} The deal included:

• A "Revolving Infrastructure Fund" allowing the GMCA to earn-back up to £30 million per year against spending on infrastructure projects.
• The formation of a "Greater Manchester Investment Framework" allowing Greater Manchester to make better use of Central Government and EU funding.
• The establishment of a "Greater Manchester Housing Investment Board" to build new housing in the area.
• The creation of a "City Apprenticeship and Skills Hub" to increase the number of apprenticeships available in the area.
• The formation of a "Low Carbon Hub" to integrate multiple carbon reduction measures.

Reduced carbon and economic growth

In November 2012, the then Energy and Climate Change Secretary Edward Davey MP, signed an agreement between the GMCA and the Department of Energy and Climate Change, in recognition of its deliverance of low carbon initiatives (such as bulk-buying energy from suppliers for consumers in Greater Manchester), ^[19] and committing the Government to design and deliver new green initiatives in Greater Manchester releasing millions in funding to pioneer new low carbon technologies. ^[20]

The GMCA was praised in November 2012 as a model for other city regions by Sir Howard Bernstein ^[21] and Michael Heseltine, ^[22] for its economic benefits.

Planning and housing

The GMCA has produced a joint strategic plan for Greater Manchester (excluding Stockport) called Places for Everyone, which includes land allocation for housing, infrastructure and other development. It is the first joint plan of its kind by a city region outside of London. ^[23]

The original scheme, called the Greater Manchester Spatial Framework, was published in 2016 following public consultations in 2014 and 2015. ^[24] After Andy Burnham's election as Mayor of Greater Manchester in 2017 the plan underwent a "radical rewrite" ^[25] with a revised plan being published in 2019. ^[26] In December 2020 Stockport withdrew from the scheme and the plan was re-scoped and renamed as Places for Everyone. ^{[27] [28]}

The plans were submitted to the Secretary of State for Levelling Up, Housing and Communities in 2022, and were the subject of an examination by the Planning Inspectorate during 2022 and 2023. Following the examination, Places for Everyone came in to effect on 21 March 2024 after it was formally adopted by all nine participating districts. ^[23]

The GMCA also established a housebuilder, Hive Homes, ^[29] with local housing associations.

Transport

In May 2012, the GMCA proposed to set up a franchisor body with neighbouring metropolitan authorities in West Yorkshire and South Yorkshire, to take over the Northern and TransPennine Express rail franchises, and, from 2014/15, operate their routes under a single franchise, sharing financial risk and operational responsibilities. ^{[30] [31]}

The GMCA lobbied the government for two stations in Manchester on the proposed High Speed 2 railway from London; at Manchester Piccadilly and Manchester Airport. ^[32]

In 2020, the GMCA and TfGM set out the Transport Strategy 2040, which lays out the city region's ambitions for transport and active travel, including the hope that by 2040, 50% of all journeys made in Greater Manchester, should be made by walking, cycling and public transport.

Integrated Settlement

In March 2023, the GMCA agreed a significant "trailblazer" devolution deal with the UK Government, securing new responsibilities over transport, housing, and regeneration. As part of this deal, it was agreed that Greater Manchester would be granted a single funding settlement, similar to that of Scotland and Wales. The single settlement will cover the entire Spending Review period and be agreed directly through a single process with the government. It will increase GMCA’s autonomy, ability to prioritise decisions locally, and ability to reprioritise across its own budgets and will be structured around responsibility and accountability for five functions: local growth and place, local transport, housing and regeneration, adult skills and buildings’ retrofit for decarbonisation. ^{[33] [34]}

This integrated settlement is expected to be implemented in the Spring of 2025, with financial details expected in the Chancellor of the Exchequer's Autumn 2024 budget and spending review.

Mayor of Greater Manchester

See also: Mayor of Greater Manchester

In November 2014, it was announced that Greater Manchester, along with several other city regions, would elect a 'metro-mayor' with similar powers to the Mayor of London. ^[35] In May 2015 an interim mayor was appointed by GMCA: there were two candidates for this post; ^[36] Peter Smith, leader of Wigan Borough Council and incumbent chairman of the Greater Manchester Combined Authority and Tony Lloyd, the Greater Manchester Police and Crime Commissioner. ^[37] Tony Lloyd was selected to be interim mayor on 29 May 2015. The first Greater Manchester mayoral election was held on 4 May 2017. ^[38] Andy Burnham was elected as the inaugural Mayor of Greater Manchester. The mayor is a member of the Mayoral Council for England and the Council of the Nations and Regions.

Organisation

Greater Manchester Combined Authority

The GMCA is made up of 11 constituent members - the Mayor of Greater Manchester together with one councillor appointed by each of Greater Manchester's 10 local authorities. Each member has one vote and each council also appoints one substitute member in the case of absence. The appointing council may at any time terminate the membership of its appointee, and the appointee will also cease to be a member if they cease to be an elected representative. The Mayor is the GMCA's chairperson, and a member of the second and third largest political groups on the authority, if applicable, are automatically appointed as vice-chairs.

Most questions arising before the GMCA are decided by a simple majority vote, and if a vote is tied it is considered to be lost. The chairperson does not have a casting vote. However, several subjects require an enhanced majority of eight votes in favour. These are: ^[39]

• The adoption of a sustainable community strategy (known as the Greater Manchester Strategy),
• Approval of new schemes to be financed by the Greater Manchester Transport Fund
• The approval of the local economic assessment
• The GMCA's annual budget
• The approval of borrowing limits, the treasury management strategy, the investment strategy and the capital budget
• The setting of the transport levy
• The acceptance of any proposed delegation of functions and budgets to the GMCA
• The amendment of the GMCA's rules of procedure
• The approval of the mayor's transport policy
• The approval of the mayor's local transport plan
• Such other plans and strategies as are determined by the GMCA

Any question relating to road user charging require a unanimous vote in favour by all 11 members. ^[39]

Transport for Greater Manchester

Transport for Greater Manchester (TfGM) ^[3] is the executive body of the GMCA for the execution of transport functions and is the executive agency responsible for the running of Greater Manchester's transport services and infrastructure such as Metrolink, subsidised bus and rail services as well as carrying out transport and environmental planning. The organisation carries out the previous functions of the Greater Manchester Passenger Transport Executive (GMPTE). The organisation absorbed the previously separate ITA Policy Unit, the GM Joint Transport Unit, the GMTU and GMUTC. It is supervised by the members of the Bee Network Committee.

Greater Manchester Fire and Rescue Service

The GMCA is the parent organisation of the Greater Manchester Fire and Rescue Service, with the Chief Fire Officer, currently Dave Russel, reporting to the GMCA Group Chief Executive. GMFRS is the statutory emergency fire and rescue service for Greater Manchester and covers an area of approximately 496 square miles.

Bee Network Committee

See also: Bee Network

The Bee Network Committee is a joint committee of the GMCA, Mayor of Greater Manchester and the ten Greater Manchester local authorities established to provide oversight of TfGM and create transport policy on behalf of the combined authority. It is named after Greater Manchester's integrated transport network, the Bee Network.

The committee has four key responsibilities: Decision-making over significant operational matters across the network, monitoring the performance and financial stability of the network, developing policy to support the local transport plan, and facilitating coordination between the ten local authorities around highways maintenance and infrastructure delivery.

Each local authority appoints one of its executive members with responsibility for transport matters to sit alongside the mayor, a member of the GMCA, and up to four other councillors appointed by the mayor. These additional mayoral appointees allow the committee's political make-up to reflect the political make-up of Greater Manchester's councils as a whole.

Joint Overview and Scrutiny Committee

A Joint Overview and Scrutiny Committee (JOSC) ^[3] provides scrutiny of the combined authority, Bee Network Committee, TfGM and CNE, each constituent council appoints three of its elected members to JOSC and sub committees can be formed to examine specific issues.

Commissions

In anticipation of the combined authority, seven commissions were set up to handle the new responsibilities, six commenced operation between May and August 2009. ^[3] They are:

• Commission For the New Economy (CNE)
• Planning and Housing Commission
• Transport Commission (never activated and superseded by the Transport for Greater Manchester Committee)
• Environment Commission
• Health Commission
• Public Protection Commission
• Improvement and Efficiency Commission

The current intention is that each of the Commissions (except Improvement and Efficiency which consists entirely of local authority members) are formed of a mixture of elected members and representatives from other partners, including the private sector, other public sector agencies and the voluntary sector. Seats are shared out amongst all the local authorities as equally as possible, with no local authority having more than one seat on each Commission, with the exception of the Improvement and Efficiency Commission which will have all authorities represented. ^[40] Each Commission's decisions require approval by the members of the GMCA.

Cabinet

The GMCA is made up of 11 constituent members: the elected Mayor of Greater Manchester and 10 members who are elected councillors, nominated by each of Greater Manchester's constituent authorities. The mayor is also supported by a non-constituent Deputy Mayor for Policing and Crime – the only salaried portfolio holder. Between 2018 and 2020, Lord Smith of Leigh continued in his lead role for Health after retiring from his leadership of Wigan Council. In most cases, the council's nominee is the leader of the authority, although there is no requirement for them to be so. ^{[41] [42]}

Nominating authority	2011		2012		2013		2014		2015		2016		2017		2018		2019		2020		May 2021		Jul 2021		Aug 2021		Dec 2021		2022		Jan 2023		May 2023		Oct 2024		Position within nominating authority	Portfolio within combined authority [43]
Greater Manchester Combined Authority		Office not yet established								Tony Lloyd (Interim)				Andy Burnham																							Mayor of Greater Manchester	Policy & Reform, Transport, Healthy Lives and Chair of the Greater Manchester Integrated Care Partnership Board
		Office not yet established												Beverley Hughes, Baroness Hughes of Stretford																		Kate Green					Deputy Mayor	Safer and Stronger Communities
Bolton Metropolitan Borough Council		Clifford Morris														Linda Thomas		David Greenhalgh						vacant		Martyn Cox								Nick Peel			Leader	Digital City-Region
Bury Metropolitan Borough Council		Mike Connolly										Rishi Shori								Eamonn O'Brien																	Leader	Technical Education & Skills
Manchester City Council		Sir Richard Leese																										Bev Craig									Leader	Economy, Business & Inclusive Growth
Oldham Metropolitan Borough Council		Jim McMahon										Jean Stretton				Sean Fielding						Arooj Shah								Amanda Chadderton				Arooj Shah			Leader	Equalities and Communities
Rochdale Metropolitan Borough Council		Colin Lambert						Richard Farnell						Allen Brett								Neil Emmott															Leader	Culture
Salford City Council		John Merry		Ian Stewart								Paul Dennett																									Mayor	Deputy Mayor; Housing First
Stockport Metropolitan Borough Council		Dave Goddard		Sue Derbyshire								Alex Ganotis						Elise Wilson												Mark Hunter							Leader	Children & Young People
Tameside Metropolitan Borough Council		Kieran Quinn														Brenda Warrington														Gerald Cooney						Eleanor Wills	Leader	Greater Manchester Pension Fund Investments and Bee Network Pensions
Trafford Metropolitan Borough Council		Matthew Colledge						Sean Anstee								Andrew Western																Tom Ross					Leader	Green City-Region
Wigan Metropolitan Borough Council		Peter Smith, Baron Smith of Leigh														David Molyneux																					Leader	Resources & Investment

Colour key (for political parties):    Conservative    Labour    Liberal Democrats

Current office holders are highlighted in bold.

References

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43. "Mayor of Greater Manchester announces new portfolios for GMCA Leaders". Greater Manchester Combined Authority. 23 September 2024. Retrieved 27 September 2024.

External links

• Greater Manchester Combined Authority
• Transport for Greater Manchester
• Transport for Greater Manchester Committee Archived 15 June 2011 at the Wayback Machine
• Commission for the New Economy
• Greater Manchester Health Commission