Burnham’s bid

What would an Andy Burnham-led government mean for utilities, if the Manchester mayor pulls off his play for prime minister?

By David Blackman, policy correspondent

Burnham’s bid

What would an Andy Burnham-led government mean for utilities, if the Manchester mayor pulls off his play for prime minister?

By David Blackman, policy correspondent

Prime minister Sir Keir Starmer and would-be prime minister Andy Burnham

‘Cometh the hour, cometh the Manc’. That is the clarion call echoing across swathes of Labour’s ranks as Andy Burnham’s long-gestating masterplan to become prime minister nears its make-or-break moment.

In just over a fortnight’s time (on 18 June), the Greater Manchester mayor faces what is shaping up to be a knife edge vote in the Makerfield by-election. If he overcomes this first hurdle and re-enters Parliament, he must then persuade his new fellow Labour MPs to dislodge their leader, Sir Keir Starmer.

Burnham’s policy stances are being treated with greater seriousness than those of any other candidate in by-election history, as Labour MPs look to him as the best hope to reverse their party’s nose-diving popularity under Starmer.

And utilities are very much in the sights of the Cambridge University graduate, who has long banged the drum for greater public control of utilities. So what would a Burnham-led government mean for energy and water?

On the buses

None of the ministerial or shadow cabinet portfolios held by Burnham during his spell as an MP from 2001 to 2016 touched on energy or water. The best place to start looking for his approach to utilities therefore is Greater Manchester, which he has presided over as directly elected mayor for nearly a decade.

His signature policy has been to bring the conurbation’s bus network back under public control by replacing the previous free-for-all of privatised services with a system of mayoral franchises. Private companies continue to run Greater Manchester’s bus depots and vehicles but under franchises set by the mayor’s Transport for Greater Manchester body.

The 56-year-old’s Greater Manchester Combined Authority (GMCA) has also been in the vanguard of efforts to conduct energy efficiency retrofits. The GMCA also helped its 10 constituent councils to draw up their local area energy plans (LAEPs), making the region one of the first areas in the country to embrace the blueprints.

Burnham has focused on issues like home retrofits partly because this is one of the areas that combined authorities, like the GMCA, have responsibility for. Ed Matthew, campaigns director at the climate change think tank E3G, says the big English urban authorities have been much better placed to tap into central government decarbonisation and energy efficiency funds than their counterparts in smaller local councils. But he credits Burnham with doing a lot to help to support retrofitting efforts in Manchester.

Guy Newey, chief executive of the Energy Systems Catapult, which worked closely with the GMCA on the production of Greater Manchester’s LAEPs, also gives Burnham the thumbs up. “The GMCA has been an absolute pioneer in local ambition and probably, if not the furthest ahead, is certainly among the top two or three authorities driving this stuff.

“Every step of the way, Andy Burnham was super supportive of this,” Newey says, adding that the uptake of LAEPs by Greater Manchester’s local authorities means they have been in pole position to take advantage of government funds that have become available for domestic and industrial decarbonisation projects

The Manchester mayor’s enthusiasm for retrofit, like the roll out of ultra-high insulation Passivhaus housing projects, may point to a refocusing of the Warm Homes Plan towards such so-called fabric first measures and away from heat decarbonisation, suspects an energy policy source.


“The Greater Manchester Combined Authority has been an absolute pioneer in local ambition and probably, if not the furthest ahead, is certainly among the top two or three authorities driving this stuff.”

Guy Newey, chief executive, the Energy Systems Catapult

Any serious nationalisation initiative could spook the financial markets and significantly increase the cost of government debt

Privatisation potential or pipe dream?

Burnham’s professed vision of what he has described as ‘Manchesterism’, which draws on his experience as mayor, could also see a significant move towards a greater decentralisation of the energy system, says Matthew. The big worry for utilities, though, is what one of the key themes of this Manchesterist vision - greater control of public services - may mean if it is implemented universally in energy and water.

Among Burnham’s most vocal backers have been left wing campaigners calling for a reversal of Conservatives’ utility privatisations of the ‘80s and ‘90s. An acid test of Burnham’s intentions would be if he allows Thames Water to enter a Special Administration Regime, which the current government has so far resolutely opposed, says consultancy Stonehaven’s head of policy Adam Bell. “If he's a believer in public control, he may view that as being an appropriate option.”

Thames’ investors will therefore be especially eager to get the company’s rescue plan over the line before a possible change of prime minister. There is, however, also a potential “threat” that a beleaguered Starmer may pursue a SAR or nationalisation of Thames in a bid to shore up his position among Labour’s left wing, says a water industry source.

And there are headaches about the impact the current wave of public ownership speculation will have on water companies’ price of debt, they say: “We've got this £104 billion programme of investment, but that's going to be put at risk if companies can't finance it. Even talking about it is going to have real world impact that nobody wants.”

Since declaring his candidacy for the Makerfield by-election, Burnham has said he would stick to the government’s fiscal rules, limiting his scope for potential spending. Holly Brazier Tope, director of politics at the Green Alliance, says: “Realistically at this point in the parliamentary cycle, it feels very unlikely that without a new mandate aka a new election, which no one wants to hold early, he [Burnham] is not going to have a massive amount [of money] available.”

Chris Rumfitt, transport expert and chief executive of public affairs firm Field Consulting, doubts that Burnham’s rhetoric will translate into wholesale nationalisation of the energy and water industries. “The government doesn't have the money to do that and the public wouldn't see any particular direct benefit anyway. You would spend money we don't have, there would doubtless be massive court cases and at the end of it, and I'm not sure the public would notice much difference,” he says, expecting to see the “more pragmatic” approach seen in the “pretty pro-business mayoralty” Burnham has run in Manchester.

Over the weekend, Scottish Power's chief executive Keith Anderson also told The Sunday Times he doesn’t see Burnham going down the nationalisation route. A senior energy source agrees that the economic benefits of restoring public ownership over the industry are not clear. “You're already in a very directed system. With CfDs [Contracts for Difference] and auction rounds, nothing gets built without big government contracts,” they add.

“You couldn't have a much more controlled situation than we're heading to with RESPs and the SSEP,” they say, referring to the regional and statutory spatial energy plans currently being drawn up by the National Energy System Operator (NESO).

Giving NESO an even stronger role than it has now is one of the policy proposals which has been presented to Burnham as a potentially low-cost option for enhanced public control of energy, Utility Week has been told.

Going beyond the current level of control in the energy system could mean copying across the “much stronger” supervisory model being introduced in the water sector, says Bell. This more intensive supervision would raise questions about continuing to have a separate regulator alongside NESO, he says: “There is an argument that in this world you might as well roll Ofgem and NESO together and just have a single body taking charge of the sector because having different bodies just creates friction.”

The downside of such a merger would be less scrutiny and accountability but a “much more straightforward” decision-making process, Bell says: “You are essentially trading off accountability against speed of delivery right now: that might be a trade-off that the government is happy to make.”

One way Burnham could demonstrate his commitment to a greater public role in energy would be to give Great British Energy a supply arm that could compete with the existing private sector retailers, suggests Rumfitt. However, the decidedly mixed experience of the rash of municipal energy suppliers set up in the late 2010s should caution Burnham against going down this route.

Who’s in Burham’s corner

If Burnham gets to No 10 Downing Street, he will be subject to a much wider set of influences and lobbying than he has experienced in Manchester. Brazier Tope says that “much will depend on who in his camp is advising him and that is shifting an awful lot”. Until now, Burnham’s allies beyond Greater Manchester have been rooted in Labour’s environmentally-minded left wing, but as he gets closer to No 10, these supporters are likely to become more peripheral.

One figure likely to remain a key influence on Burnham though is Ed Miliband, who was in favour of allowing his long-term ally’s thwarted bid to run in February’s Gorton & Denton by-election. If Burnham becomes PM, the energy secretary is tipped to either retain his current role or be promoted to chancellor, giving the ex-Labour leader control of tax and spending levers.

The energy industry policy source says: “Ed either stays in the role or goes up, and by up that's only going to be No 11 [Downing Street]. That will act as a ceiling on the types of changes that he [Burnham] might pursue, just because Ed isn't going to want to trash his legacy.”

Burnham’s swelling team is also understood to include ex-energy consumers minister Miatta Fahnbulleh, who instigated the post-local election spate of resignations from Starmer’s government. While energy minister, the Peckham MP backed more area-based retrofit works and the controversial idea of the rising block tariff, which would create a sliding scale for electricity prices with heaviest users paying the most per unit.

The proximity of these two figures to Burnham means that the government’s commitment to its Clean Power 2030 target feels secure.

Burnham will nevertheless face tensions, like Starmer has done, between Labour’s environmental wing and the net-zero sceptics among the party’s traditional trade union backers, led by Gary Smith, general secretary of the GMB. Both these wings of Labour are currently in the pro-Burnham camp but discord could break out if he becomes PM, says Rumfitt: “I suspect he's a skilful enough political communicator to avoid making a choice in any leadership campaign. Once you're prime minister, it comes down to the choices you make. In office, he might need to choose and that would be a real acid test of his premiership.”

One way to square this circle might be to fall back on another element of his Manchesterist mantra: reindustrialising the UK.

A wholesale rethink of government energy policy is not on the agenda, acknowledges a gas industry source. However, a focus on reindustrialisation could see a pragmatic shift towards a more whole-system approach that accelerates work in areas like carbon capture and hydrogen, where progress has been slow or non-existent this year, they add.

A Burnham-led government would have to find a way to spend more money than current chancellor Rachel Reeves has done in bringing down energy bills if he wants to re-industrialise, says Matthew: “He's got to find a way to make power affordable.”

Rumfitt agrees: “It's hard to see how you reindustrialise without cutting industrial energy costs. That could be one of the early tests of which way he's going to go.”

Giving non-domestic customers relief from policy levies could reduce business’ energy bills by about a fifth, estimates Matthew. This could make a “critical difference” to firms’ survival prospects but is also potentially crucial for getting a wider backing among voters, he says: “If he doesn’t do anything along these lines, I don't think people will think that he's got an agenda which is that different from what the current government's already doing.

“He's got to go for broke. More tinkering around the edges clearly is not going to cut it. If they continue with the same agenda, they will fail to cut through.”


“It’s hard to see how you reindustrialise without cutting industrial energy costs. That could be one of the early tests of which way he’s going to go.”

Chris Rumfitt, chief executive, Field Consulting