New Labour in Power in the English Countryside 1997 – 2010
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New Labour in power in the English Countryside 1997 – 2010: A Social Democratic Moment Forgone? DAVID DREW A thesis submitted in partial fulfilment of the requirements of the University of the West of England, Bristol, for the degree of Doctor of Philosophy. Faculty of Health and Applied Sciences, University of the West of England, Bristol, July 2016 Word Count 73,545 (excluding references and appendices) 1 Abstract An unprecedented number of Labour MPs was elected in rural areas in England in 1997. This study examines critically examines the making of rural policy and the implications for rural politics over the life-time of New Labour in power between 1997 and 2010. The analysis begins by evaluating New Labour’s representative role in the countryside after the 1997 election and considering the basis for the party’s claim that it represented rural areas. It then provides a critical assessment of how the New Labour governments operated in relation to the countryside, setting out frames within which to analyse policies for the countryside and discussing programmes such as rural proofing. The study then critically evaluates whether New Labour was ever able to throw off the accusation of opponents that it was an urban construct which marginalised the rural, and discusses how events and crises such as the Foot and Mouth Disease outbreak impacted on the approach to rural areas. The body of the research analyses the approach to policy-making adopted by New Labour to investigate whether ‘externalisation’ and ‘decentralisation’ were important in how policy was made and the extent to which the wider New Labour mantra of modernisation affected the countryside. It also evaluates the extent to which temporal and spatial features played a part in how rural policy and politics evolved, and the extent to which this helped explain the course that the government pursued in the countryside. The research concludes by considering whether there was a ‘social democratic 2 moment’ that opened up possibilities for important policy intervention in the countryside, and if so whether this opportunity was taken or missed. 3 Acknowledgements First and foremost, I would like to thank my supervisors, Associate Professor Alan Greer, and Professor Nigel Curry. Their advice, insightful comments and encouragement have proved to be invaluable throughout the course of my PhD research and more than anything I would like to say how much I appreciate the time they have spent, both with me, and poring over the many texts I have sent them. Second, I would like to thank my wife for allowing me to undertake this exercise, for giving me support throughout, not worrying about the costs of the exercise and making sure that I finished it. Third, can I thank the many people who gave freely of their time and who gave helpful advice when I most needed it, including fellow PhD students at UWE and the University of Gloucestershire, Countryside and Community Research Institute. There are too many individuals to mention here in person other than Dr Richard Jobson and Tom Lydon, who have read drafts of the PhD, and made helpful comments. I would particularly like to thank the many interviewees who gave generously in time and were only too willing to share their knowledge and experiences. Clearly they have to remain in the main, anonymous but I would want to say that their support has been the reason I have been able to complete this exercise. Fourth, I would like to put on the record how much I owe to Stroud Constituency Labour Party for having selected me as their Parliamentary Candidate on six occasions. Without that opportunity this research would never have come about and the experiences I have had would never have occurred. 4 Declaration I declare the work presented in this thesis is my own and that this thesis was carried out in accordance with the Regulations of the University of the West of England. Signed. Dated. August 2016 5 Table of Contents Front Page 1 Abstract 2 Acknowledgments 4 Declaration 5 Table of Contents 6 Glossary 10 Chronology 12 Chapter 1 – New Labour and rural policy: The purpose of the 13 study Chapter 2 – Rural politics and the politics of the rural during 26 the New Labour era Chapter 3 – Methodology and methods 65 Chapter 4 – New Labour’s representative role in the countryside 87 after 1997 Chapter 5 – Urban governance and the neglect of rural? 121 Chapter 6 – Tensions between (a) decentralisation/centralisation 162 and (b) externalisation/internalisation in the making of rural policy Chapter 7 – Modernisation in rural policy 203 Chapter 8 – Conclusion – New Labour and its approach to 245 the countryside - Was a social democratic moment achieved and foregone? References 284 Appendix 1 – Correspondence between Bradley and the House 348 of Commons Library Appendix 2 – Non-traditional English rural seats won by New 367 Labour in 1997 and subsequent results in 2001, 2005 & 2010 Appendix 3 – The Rural Policy Commitments in the Labour Party 370 manifestos: 1997, 2001, 2005 & 2010 6 Appendix 4 – Description of Research Participants 377 Appendix 5 – Traditional and modern definitions of the different rural 379 types of constituency Appendix 6 – Defra’s Aim and Objectives 2001 387 7 Maps and Figures Map 1 – The 1992 Election for the 3 main Parties 92 Map 2 – The 1997 Election for the 3 main Parties 93 Map3 - The 1997 Election in the South-West 95 Figure 2.1 - The Four Critiques of New Labour 31 Figure 2.2 - The Differentiated Countryside 39 Figure 2.3 - The Rural Dimensions of Power 42 Figure 3.1 - Towards a Thematic Study 83 Figure 4.1 - Labour vote in selected rural constituencies 94 at the 2001 general election Figure 4.2 - Labour vote in selected rural constituencies 94 at the 2005 general election Figure 4.3 - Total Income from Farming 1995 – 2015 100 Figure 4.4 - Rural policy spending 113 Figure 5.1 - Regional Distribution of Population 2001 134 Figure 5.2 - Defra’s model of operation from 2001 – 2004 144 Figure 5.3 - Defra and its relationships post 2004 145 Figure 6.1 - The delivery of policy 169 Figure 6.2 - Rural relationships 171 Figure 6.3 - The changes in policy-making and delivery 176 8 after 2004 Figure 7.1 - Mainstreaming rural defined 209 Figure 7.2 - Modernising Service Delivery 211 Figure 7.3 - Developing human and social capital 214 Figure 7.4 - Reaching out to Disadvantaged Groups 216 Figure 7.5 - Invigorating the Rural Economy 220 Figure 7.6 - Opponents of New Labour in the Countryside 224 Figure 7.7 - Groups which turned against New Labour 230 on Specific Issues Figure 7.8 - Three Failings of New Labour’s Rural Policy 236 9 Glossary of Acronyms and Abbreviations ACRE Action for Communities in Rural England BMA British Medical Association BSE Bovine Spongiform Encephalitis CA Countryside Agency CAP Common Agricultural Policy CC Countryside Commission CLA Country Landowners and Business Association CoSIRA Council for Small Industries in Rural Areas CRC Commission for Rural Communities CSR Comprehensive Spending Review DCLG Department of Communities and Local Government (also ODPM – Office of Deputy Prime Minister) DEFRA Department of Environment, Food and Rural Affairs DETR Department of Environment, Transport and the Regions DOH Department of Health DTI Department of Trade and Industry (also BERR – Business, Enterprise and Regulatory Reform) DWP Department of Work and Pensions EA Environment Agency EBPM Evidence-based policy-making ERDP English Rural Development Programme FMD Foot and Mouth Disease GO(R)s Government Offices (of the Regions) HOC House of Commons HOL House of Lords LAD Local Authority District LANTRA National Training Organisation for the Land Based Industries 10 LGA Local Government Association MAFF Ministry of Agriculture, Fisheries and Food NALC National Association of Local Councils NE Natural England NERC Natural Environment and Rural Communities NFU National Farmers Union OA Output Area ONS Office of National Statistics PAT Policy Action Teams PIU Performance and Innovation Unit PLP Parliamentary Labour Party PSA Public Service Agreement RCC Rural Community Council RDA Regional Development Agency RDC Rural Development Commission RDPE Rural Development Programme England RDS Rural Development Service RPA Rural Payments Agency RRAF Regional Rural Advisory Forums SEU Social Exclusion Unit SIGOMA Special Interest Group of Metropolitan Authorities SOA Super Output Area TIFF Total Income From Farming VIRSA Village Retail Services Association 11 The New Labour Chronology This chronology highlights some of the main events that occurred during the period 1997 – 2010 and developments in policy and party matters. The events chosen are not exhaustive but give an indication of the major issues and constraints that New Labour faced and some of the ways in which they responded to them, both in policy and political terms. Events Dates Policy issues and party development Election of Blair and start of New Labour 1994 General Election with New Labour winning clutch of 1997 MAFF retained rural seats rarely if ever held before Backbench Group of Rural MPs set up Campaign of the Countryside Alliance intensifies 1998 Strategy for sustainable development for the UK against hunting ban Regional Development Agencies Act Enhance to regionalism results Rural Audit report of the Rural Group published 1999 Creation of the Countryside Agency PIU report ‘Rural Economies’ Rural White Paper launched Regional Development Agencies come into being MAFF staff incorporated within Government Offices of 2000 Publication of Rural White Paper the Regions