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Mass Localism: Discussion Paper
Mass Localism: Discussion Paper
MASS
LOCALISM
A way to help small communities
solve big social challenges
FOREWORD
T
oday’s complex, global social and economic issues
present a daunting challenge. Against such overwhelming
issues as climate change and declining public health,
individual action can seem marginal. Small steps don’t seem to
go far enough in tackling issues of such scale.
Yet during NESTA’s Big Green Challenge – our £1 million prize
for community-led responses to climate change – we have
witnessed the ingenuity, deep commitment and ambition of
communities taking action on these issues together. Though
individually these actions may seem small, collectively they
make a significant impact.
This report draws on practical lessons from the Big Green
Challenge and the experiences of the local groups we have
been fortunate to work with. It offers a set of principles for how
government can stimulate and support more local responses to
big problems, at manageable cost to the public purse.
I have been struck by the number of organisations exploring
ingenious ways of supporting local solutions to big social
challenges. This report sits within this wider movement and
outlines our approach – an approach we call ‘mass localism’.
As ever, we welcome your input and views.
Jonathan Kestenbaum
Chief Executive, NESTA
February 2010
EXECUTIVE SUMMARY 3
EXECUTIVE
SUMMARY
P
olicymakers increasingly recognise that many of the
solutions to major social challenges – from tackling
climate change to improving public health – need to be
much more local. Local solutions are frequently very effective,
as they reflect the needs of specific communities and engage
citizens in taking action. And they are often cost-effective, since
they provide a conduit for the resources of citizens, charities or
social enterprises to complement those of the state. Given the
growing pressure on government finances, these are important
benefits.
But localism presents a dilemma. Government has traditionally
found it difficult to support genuine local solutions while
achieving national impact and scale.
This report offers a solution: an approach by which central and
local government can encourage widespread, high quality local
responses to big challenges. The approach draws on the lessons
of NESTA’s Big Green Challenge – a successful programme to
support communities to reduce carbon emissions.
This approach might be applied across other challenge areas,
from public health to reducing re-offending, and has some
important implications for how government can support
communities to take action at a lower cost than traditional
initiatives. We call this approach ‘mass localism’.
EXECUTIVE SUMMARY 4
CONTENTS
Conclusion 42
Endnotes 44
Acknowledgements 50
PART 1: LOCALISM IN ACTION: NESTA’S BIG GREEN CHALLENGE 8
PART 1:
LOCALISM IN ACTION:
NESTA’S BIG GREEN
CHALLENGE
P
olicymakers from across the political spectrum
are increasingly looking to harness the energy and
commitment of local groups to address big social
challenges.1 Local solutions offer the promise of radically better
social outcomes by accessing local knowledge and social
resources.
Eager to explore this, NESTA launched the Big Green Challenge
in 2007, a £1 million challenge prize for community-led
responses to climate change. We set out to test an innovative
way of stimulating and supporting communities to act on
climate change, and to develop ideas that would be sustainable
beyond the challenge prize process itself.
Though there was initial scepticism about the potential of
communities to tackle such a big issue as climate change,
we believed that by working together local groups could
devise and implement effective solutions using their unique
understanding of their particular surroundings and dynamics.
Alongside government initiatives, this form of what we call
‘community-led innovation’ can be a powerful means for
delivering urgent national objectives – at a lower cost to the
public purse and with less bureaucracy than traditional grant
funding processes for community and voluntary groups.
Stage 1
Ideas collection
Show genuine interest in good,
innovative ideas with potential
from a wide-range of groups, not Competitors put forward
fully-fledged plans or projects. their initial ideas
Keep barriers to entry low, with
only very limited eligibility criteria.
Ensure process for submitting
ideas is simple and accessible.
Quality and high-potential ideas selected
Source: NESTA (2010) ‘Smart incentives for people-powered innovation.’ London: NESTA.
PART 1: LOCALISM IN ACTION: NESTA’S BIG GREEN CHALLENGE 12
As a result, the final prize money was not the only incentive
for the projects, as ideas benefitted from access to other
non-financial support in order to get off the ground. The
prize itself generated a lot of publicity and legitimacy for
both the Big Green Challenge programme and for the
individual participants’ projects, and helped to leverage
support for both.10
PART 2:
WHY LOCALISM
WORKS – BUT REMAINS
LARGELY UNTAPPED
D
uring the final year of the Big Green Challenge,
NESTA took a closer look at the ten finalists through
rigorous, qualitative research alongside the quantitative
measurements of their impact on CO2 emissions.17 This section
will delve deeper into what made these projects effective,
to understand why localism works and why it is crucial to
confronting the many complex, seemingly intractable social
challenges that are driving escalating demand for public
services.
As the insights from the finalists indicate, local solutions rely on
their specificity, local ownership, and the ability of groups to
tailor solutions to particular contexts. Local groups are also best
placed to encourage community engagement on a social issue,
through access to local networks and existing relationships.
However, better understanding of what makes local solutions
work highlights why central government has traditionally
found genuine local engagement difficult to achieve. Trying to
support and ‘scale-up’ local action centrally can undermine this
rootedness, and take away from what makes localism successful
in the first place.
Nonetheless, the urgent and increasingly expensive nature of
many such challenges as climate change, mental and physical
health or anti-social behaviour demand more effective solutions
which can better engage the public in taking action. Though
vitally important, government action alone isn’t enough: impact
depends on the knowledge, commitment and engagement of
citizens.
PART 2: WHY LOCALISM WORKS – BUT REMAINS LARGELY UNTAPPED 19
not at all. Trying to support and ‘scale up’ local action centrally
can undermine this local rootedness, and take away from what
makes localism potentially so successful.37
PART 3:
UNLOCKING THE
POTENTIAL OF
MASS LOCALISM
T
his section will outline an approach by which central
and local government can encourage widespread,
high quality local responses to big challenges – we call
this approach ‘mass localism’. Mass localism is an alternative
approach to combining local action and national scale, by
supporting lots of communities to develop and deliver their
own solutions and to learn from each other.
We set out five principles that indicate how government should
approach mass localism, drawing on the design features in
NESTA’s Big Green Challenge. This isn’t just about government
or other public bodies running a series of challenge prizes,
although in some circumstances this could be appropriate.
Rather, mass localism holds more radical implications for how
government and others could commission and support more
community-led responses to big social challenges at a lower
cost than traditional initiatives.
This has a range of possible applications, most obviously
in complex, behavioural challenges such as environmental
sustainability, health promotion, and reducing re-offending. We
estimate that establishing a series of small ‘open community
challenge’ funds as part of current initiatives and funding, led
by the principles outlined here, could have a significant impact
on these issues and therefore their costs.
PART 3: UNLOCKING THE POTENTIAL OF MASS LOCALISM 32
CONCLUSION
T
he adoption of a mass localism approach could create
a virtuous circle of effective local action, with greater
impact and savings encouraging a greater emphasis on
locally developed and delivered solutions. The way to resolve
the current concerns over the efficacy of localism is to generate
much more of it, not limit it, and to do so in a systematic way.
Social activists have long been encouraged to ‘think global,
act local’ – to consider the health of the entire planet but to
take action in their own communities. But policymakers need
to ‘think local’ in order to create the conditions for change to
happen on a global, or national, scale – they need first of all to
consider how to stimulate and support local responses to big
problems, not what these solutions might or should be. This
requires a different type of policymaking – a much greater
sharing of responsibility between the state, communities and
citizens to determine what works and to deliver results.
Mass localism reflects a broader trend that is increasingly
apparent across the economy, culture and society: finding
distributed solutions to problems and delivering solutions
with citizens. Just as forward-thinking businesses are opening
up their R&D processes to their suppliers and customers, so
policymakers and public organisations should look for solutions
beyond established organisations and experts. They should look
also to citizens and communities.
In this case, policymakers need to resist the notion that localism
represents a form of R&D for central government. Rather, it
is the local approaches themselves that represent the final
CONCLUSION 43
ENDNOTES
1. See for example Cabinet Office (2009) ‘Putting the Frontline First: Smarter
Government.’ London: Cabinet Office; and Department of Communities and Local
Government (2008) ‘Communities in Control: Real People, Real Power.’ London:
Department of Communities and Local Government; and The Conservative Party (2009)
‘Control Shift: Returning Power to Local Communities.’ London: The Conservative Party;
and Lamb, N. (2010) ‘The NHS: A Liberal Blueprint.’ London: Centre Forum; and The
Liberal Democrat Party (2007) ‘The Power to be Different: policy paper for the Liberal
Democrat Conference Autumn 2007.’ London: Liberal Democrat Party.
2. CO2 reductions in the Big Green Challenge year were monitored by CRed on behalf of
NESTA. This data provides a conservative estimate of reductions achieved by finalists
across the Big Green Challenge year. The emissions reductions achieved, now and in the
future, may well be higher than the reductions reported here.
3. NESTA (2009) ‘People Powered Responses to Climate Change: Mapping the Big Green
Challenge.’ London: NESTA.
4. For the purposes of the Big Green Challenge (and therefore this paper) ‘communities’
are considered to be self defining groups of individuals or organisations brought
together by geography, identity or interest. Though the Big Green Challenge finalists
were predominantly communities defined by geography, a number of applicants were
interest groups or virtual communities. See NESTA (2009) ‘People Powered Responses
to Climate Change: Mapping the Big Green Challenge.’ London: NESTA.
5. Evaluation of the Big Green Challenge was led by Brook Lyndhurst for NESTA and all
data and evidence comes from the final evaluation report; for further details about the
Big Green Challenge process see NESTA (2010) ‘Smart Incentives for People Powered
Innovation: How to Deliver the Big Green Challenge Approach.’ London: NESTA.
6. NESTA (2010) ‘Smart Incentives for People Powered Innovation: How to Deliver the Big
Green Challenge Approach.’ London: NESTA.
7. Murray, R., Caulier-Grice, J. and Mulgan, G. (2010) ‘The Open Book of Social Innovation:
ways to design, develop and grow social innovation.’ London: NESTA and The Young
Foundation.
9. The Department of Energy and Climate Change (2009) ‘Low Carbon Communities
Challenge: 2010-2012.’ London: Department of Energy and Climate Change.
10. Evidence suggests that the strength of the prize is rarely derived from the size of its
purse and that the support and effective implementation of the process is as valuable.
See McKinsey & Company (2009) ‘And The Winner Is…’ London: McKinsey & Company.
11. The Big Lottery Fund (2007) ‘Answering Big Questions: impacts and lessons learned
from our evaluation and research.’ London: The Big Lottery Fund.
13. Social Enterprise (2009) ‘Good Deals 2009: the Social Investment Almanac.’ London:
Social Enterprise, Cabinet Office, NESTA.
14. The Government’s Low Carbon Transition Plan (published in July 2009) claims the UK
has reduced greenhouse gas emissions (CO2 equivalent) between 1990 and 2007 by
21 per cent, and that to deliver the Government’s 34 per cent target by 2020 the UK
needs to reduce emissions by a further 18 per cent (equivalent to 16 per cent between
2008 and 2020). Because the Challenge has been successful in developing sustainable
projects, the reductions in emissions achieved by these communities are likely to treble
over the next three to four years, meeting the UK’s targets for 2020 well ahead of time.
15. The Low Carbon Transition Plan includes the target for cutting emissions from home
energy use (which represents 13 per cent of the UK’s greenhouse gas emissions) by 29
per cent of 2008 levels by 2020.
16. For more details about the Big Green Challenge Plus, see Department of Energy and
Climate Change (2009) ‘The Low Carbon Transition Plan.’ London: Department of
Energy and Climate Change.
17. Undertaken as part of Brook Lyndhurst Big Green Challenge evaluation for NESTA.
18. For further discussion, see Bunt, L. and Harris, M. (2009) ‘The Human Factor: How
Transforming Healthcare to Involve the Public Can Save Money and Save Lives.’ London:
NESTA.
19. Boyle, D. and Harris, M. (2009) ‘The Challenge of Co-Production: how equal partnerships
between professionals and the public are crucial to improving public services.’ London:
NESTA and nef.
20. TNS (2009) ‘ACT ON CO2 Campaign Evaluation, Q2 08/09.’ London: TNS.
21. Since 1997, there have been 27 national policies (approximately one every six months)
aimed at improving the health of under-fives as a way to reduce health inequalities.
See Audit Commission (2010) ‘Giving Children a Healthy Start: a review of health
improvements in children from birth to five years.’ London: The Audit Commission.
22. There are a number of funds for community-owned energy saving measures and
micro-generation technologies, for example as part of Changing Spaces: Community
Sustainability Energy Programme funded by the Big Lottery. See for example The Big
Lottery Fund (2008) ‘Changing Spaces England.’ London: The Big Lottery Fund.
ENDNOTES 46
23. CO2 reductions in the Big Green Challenge year are estimated as annual reductions
based on those actions taken during the year.
25. The London Collaborative (the Young Foundation and the Office for Public
Management) (2009) ‘The Capital Ambition Guide to Behaviour Change.’ London: The
Young Foundation.
27. This was the case with more than three-quarters of the applicants to the Big Green
Challenge. Further, nearly three-quarters of applicants based their plans on working
directly with their communities, as opposed to working through other organisations.
See NESTA (2009) ‘People-Powered Responses to Climate Change.’ London: NESTA.
29. See for example Grist, M. (2009) ‘Changing the Subject: how new ways of thinking
about human behaviour might change politics, policy and practice.’ London: RSA; also
Halpern, D. (2010) ‘The Hidden Wealth of Nations.’ Cambridge: Polity Press; and Lehrer,
J. (2009) ‘The Decisive Moment.’ London: Cannongate Books.
31. The Young Foundation (2009) ‘Sinking and Swimming: understanding Britain’s unmet
needs.’ London: The Young Foundation.
32. ESRC (2009) ‘The Value of Volunteering: mapping the public policy landscape.’ London:
ESRC.
33. Clark, J., Dobbs, J., Kane, D. and Wilding, K. (2009) ‘The State and the Voluntary Sector:
recent trends in government funding and public service delivery.’ London: National
Council for Voluntary Organisations.
34. Department of Energy and Climate Change (2009) ‘£10m for 20 best low carbon
communities.’ Press Release. London: Department of Energy and Climate Change.
Available at: http://www.decc.gov.uk/en/content/cms/news/pn109/pn109.aspx
35. Marmot, M. (2010) ‘Fair Society, Healthy Lives: the Marmot review final report.’ London:
Department of Health.
36. Boyle, D. (2009) ‘Localism: Unravelling the Suppliant State.’ London: new economics
foundation.
37. Mulgan, G., with Ali, R., Halkett, R. and Sanders, B. (2008) ‘In and Out of Sync.’ London:
NESTA.
38. NESTA (2010) ‘Mass Localism Survey.’ Research conducted by Opinion Matters. London:
NESTA.
ENDNOTES 47
39. Local authorities and partnerships have employed some of the principles advocated
here, for example, in providing support to projects through the application process and
when running their projects (particularly in some regeneration programmes). However,
the move towards commissioning (rather than grant aid), and difficulties in identifying
and measuring outcomes, have limited the fuller application of these principles.
40. This form of ‘open innovation’ is increasingly practised in some of the UK’s most
innovative businesses as a means to designing better products and services. See NESTA
(2008) ‘Total Innovation.’ London: NESTA.
41. Perhaps indicative of this, the Healthy Community Challenge Fund (HCCF) gives money
to localities (actually, local authorities and PCTs, who must be joint bidders) to test and
evaluate ideas that make activity and healthier food choices easier. Nine areas have
been awarded ‘Healthy Towns’ prizes, sharing a £30 million investment that has to be
match funded by local partners. The HCCF attracted only 160 expressions of interest,
despite the high level of funding available. See Department of Health and Department
for Children, Schools and Families (2008) ‘Healthy Weight, Healthy Lives: A Cross-
Government Strategy for England.’ London: Department of Health and Department for
Children, Schools and Families.
42. In the case of the Big Green Challenge this intelligence is captured in NESTA (2010)
‘Galvanising Community-led Responses to Climate Change.’ London: NESTA.
43. This is echoed in calls for a broader shift towards outcome-based policymaking within
public services, as argued in Cumming, M., Dick, A., Filkin, G. and Sturgess, G. (2009)
‘Better Outcomes.’ London: 2020 Public Services Trust at the RSA.
44. It should also be noted that digital technologies and social media offer new, inexpensive
opportunities to form communities and for existing communities to collaborate. See
Accenture (2009) ‘From e-Government to e-Governance: Using New Technologies to
Strengthen Relationships with Citizens.’ London: Accenture; also Shirky, C. (2008) ‘Here
Comes Everybody: The Power of Organising Without Organisations.’ New York: Penguin;
and Leadbeater, C. (2008) ‘We-Think.’ London: Profile Books.
45. For example, the Audit Commission has recently suggested in children’s health that
in having access to family networks and understanding the cultural norms of a local
community, more locally tailored, personalised approaches could have transformative
effects. See Audit Commission (2010) ‘Giving Children a Healthy Start: A Review
of Health Improvements in Children from Birth to Five Years.’ London: The Audit
Commission.
46. Institute for Fiscal Studies (2009) ‘Public Spending: December briefing.’ London:
Institute for Fiscal Studies.
47. According to the Government’s Low Carbon Transition Plan (published in July 2009) the
UK has reduced greenhouse gas emissions (CO2 equivalent) between 1990 and 2007
by 21 per cent. To deliver the Government’s 34 per cent target by 2020 the UK needs to
reduce emissions by a further 18 per cent (equivalent to 16 per cent between 2008 and
2020).
48. Committee on Climate Change (2009) ‘Meeting Carbon Budgets – The Need for a Step
Change.’ London: Committee on Climate Change. p.73.
49. Committee on Climate Change (2009) ‘Meeting Carbon Budgets – The Need for a Step
Change.’ London: Committee on Climate Change.
ENDNOTES 48
50. Hansard (2009) ‘House of Commons Debates, 15th June 2009, col. 127W.’
51. For a range of specific recommendations on how policy and funding could stimulate
many more community-led approaches to climate change, see NESTA (2010)
‘Galvanising Community-led Responses to Climate Change.’ London: NESTA.
52. The intended impact of some existing initiatives is difficult to determine, since targets
are sometimes expressed in different ways (in the case of Warm Front, the focus is on
reductions in the number of households in fuel poverty). However, the Committee on
Climate Change suggests that initiatives to improve insulation and heating efficiency
could achieve reductions of around 7 MtCO2 by 2020; see Committee on Climate
Change (2009) ‘Meeting Carbon Budgets – The Need for a Step Change.’ London:
Committee on Climate Change. p.84.
53. Department of Health and Department for Children, Schools and Families (2008)
‘Healthy Weight, Healthy Lives: A Cross-Government Strategy for England.’ London:
Department of Health and Department for Children, Schools and Families.
54. Foresight/Government Office for Science (2007) ‘Tackling Obesities: Future Choices –
Modelling Future Trends in Obesity and their Impact on Health.’ 2nd Edition. London:
Foresight/Government Office for Science; also Office for National Statistics (2004) ‘The
Health of Children and Young People: Diet and Nutrition.’ London: Office for National
Statistics; and Food Standards Agency (2010) ‘National Diet and Nutrition Survey:
headline results from year 1 of the rolling programme 2008/9.’ London: Food Standards
Agency.
55. McCrone, P., Dhanasiri, S., Patel, A., Knapp, M. and Lawton-Smith, S. (2005) ‘Paying the
Price: The Cost of Mental Health Care in England to 2026.’ London: The King’s Fund.
56. Department of Health (2009) ‘New Horizons: A Shared Vision for Mental Health.’
London: Department of Health.
57. Home Office (2009) ‘Re-offending of Adults: Results from the 2007 Cohort, England
and Wales.’ London: Home Office; also Home Office (2009) ‘Re-offending of Juveniles:
Results from the 2007 Cohort, England and Wales.’ London: Home Office.
58. Solomon, E., Eades, C., Garside, R. and Rutherford, M. (2007) ‘Ten Years of Criminal
Justice under Labour: An Independent Audit.’ London: Centre for Crime and Justice
Studies; also Social Exclusion Unit (2002) ‘Reducing Re-Offending by Ex-Prisoners.’
London: Social Exclusion Unit.
59. Kahn, E.B., Ramsey, L.T., Brownson, R., Heath, G.W., Howze, E.H., Powell, K.E., Stone,
E.J., Rajab, M.W. and Corso, P. (Task Force on Community Preventive Services) (2002)
The Effectiveness of Interventions to Increase Physical Activity. ‘American Journal of
Prevention Medicine.’ 22 (4S), pp.73-107; also Mulgan, G. (2010) ‘Influencing Public
Behaviour to Improve Health and Wellbeing: An Independent Report.’ London:
Department of Health.
60. When placed alongside existing government targets, this goal seems relatively
unambitious. The Change4Life campaign – part of the cross-government Healthy
Weight, Healthy Lives strategy – aims to bring obesity back to 2000 levels by 2020. This
amounts to a 50 per cent target reduction in the percentage of obese young people.
61. Department of Health (2009) ‘New Horizons: A Shared Vision for Mental Health.’
London: Department of Health.
ENDNOTES 49
62. Aricca, D., Van Citters, B.A. and Bartels, S.J. (2004) A Systematic Review of the
Effectiveness of Community-Based Mental Health Outreach Services for Older Adults.
‘Psychiatric Services.’ 55, November, pp.1237-1249; also Thomas, H., Boyle, M., Micucci,
S. and Cocking, L. (2004) ‘Community-Based Interventions to Improve Child Mental
Health: Review of Reviews.’ Hamilton, Ontario: Effective Public Health Practice Project;
also Sainsbury Centre for Mental Health (2000) ‘On Your Doorstep, Community
Organisations and Mental Health.’ London: Sainsbury Centre for Mental Health; and
Mental Health Foundation and the Sainsbury Centre for Mental Health (2002) ‘’Being
There in a Crisis. London: Mental Health Foundation.
63. Bunt, L. and Harris, M. (2009) ‘The Human Factor.’ London: NESTA.
64. House of Commons Justice Committee (2010) ‘Cutting Crime: The Case for Justice
Reinvestment.’ London: The Stationery Office.
65. O’Brien, R. (2010) ‘The Learning Prison.’ London: RSA; Drake, E., Aos, S. and Miller, M.
(2009) ‘Evidence-based Public Policy Options to Reduce Crime and Criminal Justice
Costs: Implications in Washington State.’ Olympia, WA: Washington State Institute for
Public Policy; also Latimer, J., Dowden, C. and Muise, D. (2005) The Effectiveness of
Restorative Justice Practices: A Meta-analysis. ‘The Prison Journal.’ 85 (2) June, pp.127-
144; and Criminal Justice Service (2009) ‘Engaging Communities in Criminal Justice.’
London: Home Office.
ACKNOWLEDGEMENTS 50
ACKNOWLEDGEMENTS
W
e would like to thank our colleagues in NESTA’s
Public Services Innovation Lab who made the Big
Green Challenge happen, in particular Vicki Costello,
Alice Casey, Kerry McCarthy, Pete Capener, Helen Goulden
and Laura Dowson. Thanks also to Stian Westlake and Daniel
Oppenheimer for their comments and guidance on the text
as well as all of those who participated in NESTA’s roundtable
discussions ahead of publication. Finally, we would like to thank
all of the groups that participated in the Big Green Challenge
throughout the programme – their insights have been extremely
valuable.
THE LAB: INNOVATIONS IN PUBLIC SERVICES 51
THE LAB:
INNOVATIONS IN
PUBLIC SERVICES
O
ur public services face unprecedented challenges,
made more urgent by the impact of the current
economic crisis. Traditional approaches to public
services reform are unlikely to provide the answers we need.
NESTA is applying its expertise to find innovative ways of
delivering our public services. More effective solutions at lower
cost will only come through ingenuity. Our Public Services
Innovation Lab is identifying, testing and demonstrating new
ways of responding to social challenges and delivering better
public services at lower cost.
NESTA
1 Plough Place London EC4A 1DE
research@nesta.org.uk
www.nesta.org.uk