Multi-level governance: the case of

London Local Government

Nirmala RaoGoldsmiths CollegeUniversity of London

Labour’s constitutional revolution

DevolutionScotlandWalesNorthern IrelandEnglish RegionsLondon

Devolution in Scotland

September 1997 referendum (big majority) Scottish Parliament elected – May 1999 Responsible for health, education, housing,

economic development Scottish executive has proved powerful and

independent (eg, University fees) 2007 – Scottish Nationalists win power and

promised referendum on independence

Devolution in Wales

Welsh Office – 1965 The rise of Welsh nationalism Welsh Assembly created in 1998 No power to make policy Power shifted from local authorities, not

downward from Whitehall Enhanced powers 2006

The case of Northern Ireland

Long history of devolution, suspended 1972 Peace process led to restoration of devolved powers

(since suspended and restored again) Northern Ireland Assembly – economic, social,

agricultural and rural affairs, education and training, trade and investment

Deep political conflicts impeded devolution Opposing parties now power sharing

The English Regions

Long tradition of regional government (central government offices in the Regions)

New Labour created Regional Development Agencies (RDAs) and appointed assemblies

Plans for elected assemblies dropped after referendum defeat in North-East

Continuing emphasis on co-ordination of central government activities in the regions

The London Question

Conflict between national and London’s interest

A tradition of central control A century of demands for devolution London’s status as the capital city GLC (1964-83) – London’s first regional

government

The abolition of GLC

left power in the hands of • Ministers• 32 London boroughs• joint arrangements• London First (private sector)

Coping with fragmentation

Cabinet sub-committee and Minister of London

Government office for London (GOL) partnership arrangements, notably London

First

New Labour’s proposals

A New Leadership for London proposed a new democratic forum to provide leadership, to continue to promote London as a World City and to bridge the gap between community-led government and national government.

The new arrangements for London centre on a new elected body – the Greater London Assembly – and the Mayor, which together constitute the Greater London Authority.

The Mayor and Assembly

Principal executive power and authority is vested in the Mayor. In common with conventional local authorities he is unable to delegate functions to a single elected member of the Assembly, with the exception of the deputy Mayor who is part of the executive function of the authority.

The Mayor has also to provide an annual report on the exercise of his statutory functions, in particular progress on implementing the several strategies that the Act requires him to prepare. He has also to report such information as the Assembly may require at the beginning of the year to which the annual report relates.

The Mayor and Assembly

The main function of the Assembly is to secure the accountability of the Mayor. First, the Mayor has to report to each meeting of the Assembly in written form, and is obliged to attend each meeting. Assembly members can question the Mayor orally or in writing.

The new arrangements

Most of the former London-wide organisations are absorbed into the GLA – the London Research Centre (LRC), the London Planning Advisory Committee (LPAC), the London Ecology Unit (LEU) and the London Pensions Fund Authority (LPFA).

Transport for London (TfL) and the London Development Agency (LDA) run transport and economic development respectively, and will be accountable to the Mayor who will appoint their boards.

The new arrangements….

The Metropolitan Police Authority (MPA) will be the first such body locally-accountable in London history, with the Mayor appointing Assembly members to 11 places on the 23-strong Police Board.

London Fire and Emergency Planning Authority (LFEPA)

A crowded arena

Ministers Whitehall departments Appointed bodies Greater London Authority The boroughs Representatives of the business community…all working together but competing for

influence

Whitehall departments

DCLG Transport Culture, Media and Sport Trade and Industry Home Office Health The Government Office for London (GOL)

Appointed Bodies

Strategic Rail Authority (until 2005) Housing Corporation HEFCE Learning and Skills Council Arts Council Sport England etc..etc…

London’s own government

The GLA - The Mayor and Assembly 32 London boroughs City of London London Councils

Managing London

The problem: the key issues facing London inevitably draw in all the major players – central government, the GLA, the boroughs, the appointed bodies, commercial interests (e.g. London First)

The solution – concentrate more power in the hands of the Mayor?

Enhancing the powers of the Mayor Devolution under GLA Act 1999 judged a success Mayor gains new powers

housingplanning skills trainingother powers to appoint

Is this devolution?

The government argued…

We want to achieve the right balance of powers between national government, Greater London Authority and the London boroughs, to ensure that London continues to hold its deserved position as a global city with a highly successful economy… We are devolving powers from Whitehall to London wherever feasible. But in some specific cases, such as planning, we are strengthening the mayor’s powers in relation to the boroughs where we believe a more strategic approach will deliver better co-ordination and delivery of services

The future of devolution

The true devolution of power goes beyond regional and local devolution to public authorities. It means devolving more power from government altogether, and into the hands of local communities - giving local people the tools to make improvements in their own neighbourhoods (Chancellor of Exchequer)

The new plan: double devolution

It is not possible – sitting in Whitehall – to say what approach will work for what community under what circumstances – that is a matter for councils and other public service providers in consultation with their residents. But I believe it is possible for central government to subscribe to the principles of devolution. Indeed it is necessary to do so in order for the double devolution deal to be put in place (Miliband, 2006)

The emerging consensus

Eliminate duplication Greater devolution to local authorities Enhance financial capacity Can Westminster/Whitehall let go? Can local authorities let go of powers to

communities?

Boris: A New Era for London

2008 London elections Conservatives gain Assembly seats but no

majority Mayor Ken Livingstone (2000-8) defeated by

Conservative Boris Johnson Signed City Charter agreement with boroughs

The City Charter

Essentially a new deal with the boroughs:

Londoners expect those that they elect to govern this great city to work together for all their interests. While the tiers of London government have distinct roles, this document sets out how we can bring them together to harness the full potential of the capital’s public services.

New Principles for Governing London

London’s elected leaders will ensure that government decisions are made as close to people as possible… [they] recognise that each tier of London government has a unique contribution to make… [they] recognise the vital role played by the London Assembly and borough councillors in providing effective scrutiny for all levels of London governance

A Congress of London Leaders

A congress of London Leaders to meet at least twice yearly (borough leaders and Mayor) to take joint decisions

A joint delivery board for London’s public services to take action on priorities identified by the Congress

Mayor pledges to over rule borough decisions only as a last resort and only in the most exceptional circumstances

To sum up….

London’s governmental complexity remains Labour government unlikely to devolve further powers

to Conservative Mayor Mayor Johnson will work closely with Conservative

leadership who are moving towards further devolution to local authorities

Post 2008 London will work very differently

Multi-level governance: the case of

London Local Government

Professor Nirmala Rao

Goldsmiths College

University of London

Multi-level governance: the case of

London Local Government

Nirmala RaoGoldsmiths CollegeUniversity of London