David Halpern argues such a theory is needed to amplify and channel the goodwill of civil servants into coordinated and effective impact
Labour should set out a "practical theory" of government that gives clearer direction to Whitehall as it works to realise its five "missions" to rebuild Britain, according to a new paper by David Halpern, who until recently led the Behavioural Insights Team (BIT) - or "Nudge Unit" - since its creation in 10 Downing Street in 2010, and was previously Chief Analyst in Tony Blair's Strategy Unit.
Published by the Policy Institute at King's College London - where Halpern is a visiting professor - and BIT, the paper argues that Labour would benefit from articulating what is distinctive and different about its approach in a clear theory of government.
Halpern cites Tony Blair's focus on "new public management" and Margaret Thatcher's drive towards privatisation and a smaller state as examples of how such theories have previously guided administrations that instituted significant change.
A failure to develop and communicate a theory of government can often lead to confusion and disappointment, Halpern warns, as ministers become frustrated that civil servants don't "get" the new government and civil servants struggle to understand what ministers want.
Halpern argues that a practical theory of government is essential to amplify and channel the goodwill of 400,000 civil servants into coordinated and effective impact. Such a theory needs to set out the "what", "how", and "who" that can help shape policy across many domains, and especially public service reform.
As part of this theory, Halpern argues the government must provide more detail on how it intends to achieve its missions, including mapping the estimated impact that policies or interventions will have on key targets, such as halving violent crime, which is part of the mission to "take back our streets".
Halpern says this process should also show the relationship between government targets and broader measures used to track progress, to avoid "winning the battle, but losing the war" - where specific targets are delivered, yet the government's underlying intent is missed.
Such monitoring and tracking is essential for success, Halpern says, and while there are major benefits from having relatively clear "task responsibility" at ministerial and departmental level, it is right that the centre of government has oversight of progress towards the missions, to ensure adequate resources are made available, and to resolve tensions or conflicts between departments and other objectives of government.
Labour has already strengthened this oversight through a new Mission Delivery Unit in the Cabinet Office, with a team of around 25 people - or roughly four or five civil servants to track each mission.
At the heart of Labour's attempt to define a practical theory of government should also be a serious drive to boost the skills and capabilities of civil and public servants, Halpern says.
Government generally needs to rapidly up its game when it comes to experimenting with policies and interventions, with far better testing and evaluation of what works - skills that are in short supply, not least because of limited training opportunities, Halpern argues.
He highlights that the Singapore government - which has the highest World Bank rating for government performance - sent around 40,000 of its civil servants to courses at its Civil Service College in 2010. The UK, despite being 10 times the size, sent only around 30,000 a year to its National School of Government, before it was shut down around 2011.
On top of this, government is typically not good at harnessing the wisdom or experiences of citizens, with most public services fundamentally not oriented to listening and learning from those who use them, Halpern writes.
Public services shaped around people, rather than people having to shape themselves around public services, should be a working principle of the new government, not just "aspirational puff", he says.
There is also a "strong case" for even deeper citizen involvement in governing, and the government might do well to follow the lead of the Irish government in incorporating citizens' assemblies into the heart of its working, Halpern says.
This is particularly important in the context of Labour's apparent move towards what he dubs a "catalytic state", where government plays a more active role in the economy, for example in fostering and increasing investment, as well as improving consumer information and addressing market failures.
Effective prime ministers, and governments, need a 'how-to guide' that informs their army of civil and public servants. This guide or 'practical theory of government' enables the voice and intent of the prime minister to always be in the room. It took Blair well into his second term to develop this type of practical theory. Starmer will wish to do this much faster. The missions are an excellent starting point. But No 10, and the new Mission Delivery Unit, will need to develop a fuller account of the 'what', 'how' and 'who' of a practical theory. As the new No 10 will rediscover, there is nothing as practical as a good theory.
David Halpern, President Emeritus of the Behavioural Insights Team and Visiting Professor at the Policy Institute, King's College London
The new UK government has a massive in-tray of challenges, against an even tougher economic and global backdrop than that faced by Tony Blair. With that in mind, it is particularly valuable for the new government and No 10 to be able to draw on the lessons from previous administrations. It is a learning that we seek to support through the Policy Institute, and our Visiting Professors such as David Halpern - senior policymakers who have 'been there and done it' - and through thoughtful papers such as this.
Professor Bobby Duffy, Director of the Policy Institute at King's College London
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