LOCAL DEMOCRACY AND DIRECTLY- ELECTED

Introduction

The issue of directly-elected mayors (DEMs) raises important questions about local democratic accountability, leadership, and local service provision, all of which lie at the heart of local democracy in . In this special Local Work, CLES provides a forum in which No 51 July 2003 two leading protagonists in the debate discuss the story of DEMs in England to date and assess their future. Local democracy and Peter Latham from the Labour Campaign for Open Local Government and Anna Randle of the New Local Government Network both directly-elected submitted a paper outlining their thoughts on directly-elected mayors. They then responded to each other’s initial paper. To mayors conclude, CLES Director Neil McInroy and Researcher Chris Mawdsley summarise the arguments and emphasise the need for a greater ‘The Case For’ written by Anna sensitivity to local political cultures. Randle, Head of Organisation, NLGN ‘The Case Against’ written by Dr Peter Latham, Secretary, LCOLG In order to consider the qualities of the model at this stage in its development, it The Case For: New Local Government Network, is important to recall why the 2nd Floor, 42 Southwark Street, Government saw it as an attractive A lesson in strong London SE1 1UN option in the first place. Tel: 020 7357 0404 leadership and Email: [email protected] accountability Website: www.nlgn.org.uk The need for a new Labour Campaign for Open Local Anna Randle is Head of Organisation at approach Government, Flat 8, “Scoresdale”, the New Local Government Network 13 Beulah Hill, London SE19 3LH (NLGN) and runs the Mayoral Forum, Local government is not understood or Tel/Fax: 020 8653 0248 through which NLGN and the regarded as important by the vast Email: [email protected] Improvement and Development Agency majority of the electorate. Turnouts in Website: www.open-gov.org.uk/lcolg monitor the progress of the UK’s directly- local elections are low and generally elected mayors. declining. On average less than 5% of Editor: Kari Manovitch, CLES people can name their council leader, still less their own councillor. Fairly or not, local government is regarded by Local Work is published by the Centre Introduction most as a monolithic and unaccountable for Local Economic Strategies, Express bureaucracy that exists to deliver central Networks, 1 George Leigh Street, The directly-elected model has government policy, and it is often M4 5DL been one of the most controversial argued that local elections are largely a elements of the local government reform comment on the performance of central Tel: 0161 236 7036 agenda. With the first elected mayors government. These problems amount to Fax: 0161 236 1891 now in post, the debate about the a significant democratic deficit at the Email: [email protected] relative merits and demerits of the local level, at a time when central Web: www.cles.org.uk model shows no signs of abating as the government is slowly beginning to ISSN: 09503080 ‘mayoral experiment’ continues to acknowledge that the steep changes it attract strong interest – and strong has promised in public services can only The views expressed in Local Work are feelings – within the local government be delivered in partnership with strong, not necessarily those of the Centre for community. It would not be credible and able local institutions. Local Economic Strategies exaggerating to say that the elected mayor idea is almost universally The elected mayor model was therefore Printed by Russell Press, unpopular within local government. designed to engage people in new ways, 1 by injecting accountability, new faces, in endorsement of the model, and in the looking political concerns of party and real competition into the equation. last 12 months eleven local authority candidates. These are first round effects, Unlike council leaders, DEMs: mayors have been elected. The mayoral and it will be interesting to see what will elections themselves produced many happen when the mayors are up for re- ■ Set their own budgets surprises, resulting in a change of election in three years. political control in four places and a ■ Appoint their own cabinets change of leadership in five. Local political hegemonies were challenged, ■ Pursue their own manifesto with successful independent candidates Analysing the commitments in traditional Labour heartlands such as achievements Middlesbrough, Hartlepool and Stoke on ■ Represent the public face of the Trent, and a Conservative winning in With eleven DEMs in place we can now council North Tyneside, although Labour move on to the next stage: an analysis candidates retained control in all three of what those mayors are actually Enthusiasm for the model by central London boroughs. Certainly on a achieving in post. NLGN and the IDeA government was borne of a recognition simplistic level a public appetite for have been running a ‘Mayoral Forum’, that effective, high profile, and change was delivered in many places. involving regular meetings of the DEMs legitimate local leadership is essential to to learn and understand the lessons delivering high quality local public The unusual nature of these results has which are emerging – what problems services. Policy makers looked abroad to often been used by detractors of the DEMs can solve and what they can the internationally renowned DEMs of model as proof that the mayoral model create, and what difference the system such as Barcelona, New and is somehow the illegitimate child within can make. Sydney, and hoped that some of the the local government family. However, it same magic might be injected into the must be remembered that they are the It is worth remembering in any analysis governance of our own and cities. result of democratic processes, and many of the mayoral model that it is still very positive lessons in terms of the new early days. Mayors are elected for four dynamics at play can be drawn from the years and all of the first eleven are a year election results. or less into their first terms. Many The No Campaign mayors in this early period have had It is certainly true that the elections their attentions on more internal Perhaps what wasn’t anticipated introduced new faces, many of whom concerns, for example the inheritance of however, was the strength of opposition readily admit they would not have budget deficits, cultural resistance and such an initiative would face from local become involved under the previous lack of understanding of the model political establishments within the UK. system. A significant number of the among colleagues and councillors and Perceived – quite accurately – as a threat DEMs do not have local government the establishment of a mayoral office. to the old ways of working, ‘no’ backgrounds, and they are a diverse This can make analysis of what the campaigns both formal and informal group in comparison to the standard model can offer to the community sprang up around the country and the local government demographic – for slightly premature. However, there are a counter arguments were made: example two of the mayors elected were number of areas where consensus is under 35 years old. Although turnouts emerging about the problems – and ■ Too much power in one person’s in some mayoral elections were no possibilities – of the model. hands would lead to corruption; higher than in traditional council elections, where there was strong Many of the challenging areas for DEMs ■ DEMs would strike deals with the competition between candidates they can be seen as the result of institutional private sector and outsource public often rose significantly – for example to resistance to the idea, especially where a services; 41% in Middlesbrough and to 42% in mayor was elected who was not of the North Tyneside. The level of political majority political party. There is DEMs would be less democratic because debate and interest, for example in the evidence that in some cases council the decision-making powers are held by local media, was also much higher in constitutions have been designed to one person and DEMs would be harder many places than in traditional local check mayoral power, for example in to get rid of because of their four-year elections. limiting the mayor’s influence over key terms in office. senior appointments, or in setting the In terms of the election results, there is budget. There is also evidence of It would not be unfair to say that in also evidence that people voted in a scrutiny being used politically, which many cases the idea never had a chance, more ‘localist’ way than is often the case may hinder the mayor’s ability to in the face of a general lack of balance to in local elections, with abandonment of progress policies and effect change. the arguments which surrounded it. traditional party political loyalties in favour of individual candidates’ local Another key area where the model is manifestos. It was also arguably true that being tested is the communications in some cases the political parties, long question of whether a council can Interpreting the results accustomed to winning elections with promote the DEM as an individual. As is little or no competition, suffered in the often the case, this is being interpreted So where is the mayoral model today? In face of independent candidates who differently according to the particular the last two years approximately one were partly seen as un-encumbered by politics and background of each third of mayoral referenda have resulted the values, ideologies and inward- authority. Some legal teams are advising 2 that the DEM and his or her policies approaches to their public profile, but exceeded, and quickly realised cannot be personally promoted by the with name recognition approaching 97% commitments in Doncaster and council, and this is clearly a potential in Middlesbrough, it is hard to deny that Newham to remove abandoned vehicles problem in terms of the public’s the perception of the council as a from the streets. understanding of what is different under faceless, unaccountable bureaucracy is the mayoral model and what each changing. particular DEM has actually achieved. This situation, along with some of the Conclusion others mentioned here, is currently being monitored by the ODPM. It will A new style of Although it is early days to be evaluating take time for constitutions and leadership the success or failure of the mayoral understanding of the model in practice model in delivering change for local to evolve, to get the legislation right, The style of leadership offered by an communities, it has certainly delivered a and for culture change to embed. elected mayor is therefore very different fascinating new agenda to watch and from a traditional council leader. In post learn from. The future development of for four years, mayors offer greater the model will depend on the stability and are more outward-facing. In performance of the first eleven DEMs, Positive signs many cases the first months of office and so it is crucial that constitutional have been characterised by a realisation barriers are addressed in order for the However, there is also evidence of a new, that mayoral politics only work with a model to be tested effectively. It is also more mature and consensual political high degree of personalisation. DEMs see important that we progress the debate culture emerging in some authorities, themselves as leaders of the local area, beyond the theoretical or reactionary even where there is an independent or not the local authority – a key difference arguments, and really try to understand ‘opposition’ mayor. It has been argued in terms of their perceptions of their the lessons emerging from the mayoral that real progress can be made where a roles and remit compared to a council authorities as they progress over the DEM in a potentially difficult political leader. Initiatives such as regular public next three years. Understanding what situation in the early stages prioritises question times with mayors offer new the mayoral model, together with other the development of a new working ways of building relationships with the executive structures, can offer in culture above all else. Cross-party public. different situations and circumstances cabinets can work together and ‘back- will enable evidence-based policy bench’ councillors can find themselves It has been argued by DEMs that this making as we seek to strengthen, liberated to create a new, more type of personal leadership can also be develop and rejuvenate local community-focussed role. Although this beneficial in terms of building government in the future. emergence of a new political culture is relationships with potential local not yet the norm for all mayoral investors and employers, as well as local authorities, it does indicate a positive partners. They appreciate the personal way forward. articulation of a vision for a whole area, and the role the DEM can play in There are also a number of areas of building local consensus around this. consensus about the benefits which the The mayoral model can therefore be The Case Against: model can offer. The most consistent seen to help facilitate the community and strikingly positive arguments made leadership role, which is increasingly a A review in the by DEMs, officers and councillors – and priority for local authorities. A recent even local partner organisations – are ‘mayoral conference’ in Doncaster context of the about improved accountability, clarity brought together a wide range of and speed of decision-making. DEMs stakeholders for two days to consider the neo-liberal global offer strong leadership, and it is future of the . Those attending undoubtedly the case that in all mayor- included all political groups, council agenda led councils it is now better recognised officers, and local partners such as where the decisions are coming from. health and police. This is not to say that Dr Peter Latham is a sociologist and Problems are resolved faster, and this is a council leader cannot do something former researcher at the London School of seen as immensely beneficial to council similar, but it was argued that the DEM Economics. Since September 1999, as business and to the authority’s ability to in this instance provided the necessary Secretary of the Labour Campaign for work with its local partners. focus on a new agenda for change. Open Local Government, he has both campaigned and written from a socialist In the majority of cases this increased Finally, in these relatively early stages, perspective on all aspects of the Local accountability also appears to be there is also evidence that service Government Act 2000. resonating with the public. Despite the initiatives in accordance with a DEM’s uncertainty over communication I priorities are driven forward and highlighted above, there is evidence that achieved more quickly. This is in mayoral name recognition among the addition to the realisation of specific Introduction public is increasing, even in areas where mayoral manifesto pledges such as the DEM was the previous council Mayor Ray Mallon’s pledge to cut crime This paper analyses the English local leader. The numbers obviously vary, and by 15% using community wardens in authority mayoral referenda, elections different mayors are taking different Middlesbrough which has already been and post-election developments in the 3 context of the globalisation debate. A international restructuring occurring petition campaigns have successfully comparative approach – with special today. The concentration of capital has triggered mayoral referenda in only reference to Germany, which introduced led to new forms of political regulation seven areas: Berwick-upon-Tweed, directly-elected local authority mayors at the international (e.g. the WTO and Bedford, Mansfield, Stoke-on-Trent, over ten years ago – is used to speculate GATS), national (e.g. Task Forces and Newcastle-under-Lyme, Corby and about the likely future impact of such quangos) and local level (e.g. directly- Ealing. mayors in England. The paper concludes elected mayors). But he acknowledges with a discussion of the prospects for a that whilst there has been no overall socialist alternative to the neo-liberal erosion of state capacities, there has global agenda in local government. been a ‘de-politicisation’ of the state.3 The 11 successful That is, key state activities are now mayoral referendums shielded from effective monitoring by increased outsourcing and privatisation. All the successful yes votes (except in Making the connection: Watford which lacked a serious No The neo-liberal global It is within this context that I view Campaign) occurred after 11 September directly-elected mayors. Clearly the 2001 and the ‘Giuliani’ factor, so-called context and directly- Local Government Act 2000 opened the after the New York Mayor Rudolph elected mayors door to new forms of political Giuliani. Five of these were held within regulation, advocacy, executive mayors five weeks of the World Trade Centre In The Captive Local State I argue that and cabinets. Furthermore, it opened up attack. However, in the subsequent six the ‘predominant interest of the owners the local state to greater involvement of referendums, the ‘Giuliani’ factor of capital in the most advanced privatised contractors in the delivery of appears to have had no influence. industrial countries has shifted from the public services.4 The question is Moreover, in the first five votes the manufacturing of goods to the therefore, how penetrative have directly- ‘Giuliani’ factor was compounded by provision of services’; and that this elected mayors been to date, and what specific local factors – namely the ‘shift is reflected in the planned affect have they had on the local history of corruption in Doncaster; the extension’ of the General Agreement on democratic landscape? presence of a maverick potential Trade in Services (GATS) ‘to apply to all candidate with popular appeal in levels of the state, including the local Middlesbrough which split Labour; the state, which could lead to the divisions within the Labour Party in privatisation of virtually all national The poor progress of the North Tyneside and Lewisham; and the and local state services’.1 Moreover, the directly-elected mayoral previous defection of a number of Godfather of GATS is the US Coalition Labour councillors to the Liberal of Service Industries (USCSI) – agenda Democrats plus financial difficulties in ‘undoubtedly the most influential Hackney. In Stoke-on-Trent in the May services lobby group in the world. Its The New Local Government Network 2002 local elections Labour lost nine origins date back to the 1970s’; and it (NLGN) has been a leading advocate of seats (including that of the Leader and ‘considered the inclusion of “trade in directly-elected mayors.5 Speaking in Deputy Leader who both campaigned services” in the General Agreement on 1998, Professor Gerry Stoker – NLGN against the proposal for the council to Tariffs and Trade (the World Trade Chair – said: “We have the prospect of be run by a directly-elected mayor with Organisation [WTO] precursor) as a many, if not most, of our major cities a council manager) and overall control good tool…to force open...what were at being run by a DEM by the next election of the council. The No Campaign in that time heavily regulated markets – whether the incumbents like it or not. Stoke was defeated probably because – as outside the US’.2 I do not think this movement of in Lewisham and unlike in Brighton and opinion can be stopped.”6 However, – despite strong cross-party, trade On Monday June 10th 2002 The Times evidence to date reveals this view to be union and community support, it was newspaper carried the banner headline: somewhat over-optimistic. No major started too late and lacked the resources MANDELSON TELLS LABOUR: WE ARE has yet endorsed the idea of executive available to the Yes Campaign. ALL THATCHERITES NOW. Peter mayors; it has in fact been defeated in Mandelson amplified this with an article 19 of the 30 referendums to date.7 48.3% inside, giving the message coming out of (434,393) have voted for executive a conference of Blairites the previous mayors whilst 51.7% (465,483) have 11 mayoral elections so weekend. Among the attendees at this voted against. Most devastating for the far – an unmitigated Mandelson-organised conference were government’s optimism, however, is the Bill Clinton, Tony Blair and Gordon fact that – despite 75% of respondents disaster for New Labour Brown. Peter Mandelson’s thesis is that favouring directly-elected mayors in globalisation has removed any their 2001 survey8 – the overall average Of the 74 mayoral candidates that stood alternative to the business dominance of yes vote from all 30 referendums is only for election on May 2 and October 17 politics – or as Margaret Thatcher 12.9%. This ranges from 28.6% of the 2002, there were 11 Labour, 11 tellingly put it, There is No Alternative. total electorate voting yes in Conservative, 10 Liberal Democrat, six Middlesbrough to only 3.5% in Green, four Socialist Alliance, two British However, Peter Burnham rejects this and Southwark. Watford and Redditch - National Party, and 30 Independent. familiar claim that states have lost power where 12.7% and 12.5% respectively Only 23 of these were councillors (nine to global markets and argues that the of the total electorate voted yes – were Labour, seven Liberal Democrat, four national state plays a crucial role in the in the middle of the range. Local Conservative and three Independent). 4 Out of the 11 Labour candidates in the Independents won five of the mayoral In the 1970s, in Newcastle-upon-Tyne – contests, only four were already in contests; and a Conservative and Liberal where the first council manager was power as Leaders of their councils Democrat each won in the other two introduced – it took the police over (Martin Winter in Doncaster MBC, Sir contests. three years to obtain the necessary Robin Wales in Newham LBC, Vince evidence to convict leader T Dan Smith Muspratt in Watford and Jules Pipe in of corruption.14 The system now, Hackney LBC) and whilst three of these however, is much more complex and the were elected and managed to hold on to The impact on local risk of corruption is compounded here – power, Vince Muspratt was defeated by democracy unlike in Germany – by the absence of a the Liberal Democrat’s candidate. None mayoral recall procedure. of the remaining seven Labour Five years later there is no empirical candidates were current Leaders and of support whatsoever for Professor Gerry these only one – Steve Bullock in Stoker’s 1998 prediction that most major Lewisham – was successfully elected. cities would soon have a DEM. Yet, just Comparative Note: before the resignation of Secretary of The case of Germany These subsequent seven mayoral elections State for the Environment Stephen Byers were in Middlesbrough, Hartlepool, in May 2002, Gerry Stoker was Until the early 1990s only two Lander – North Tyneside, Lewisham, Stoke, appointed to assess whether the Local located in the former American Bedford and Mansfield. In Middlesbrough Government Act 2000 Act is working.9 Occupation Zone – had directly-elected Labour’s candidate Sylvia Connolly, the The project is entitled ‘Evaluating Local mayors. Lander in the British Deputy Council Leader and Teesside Governance: New Constitutions and Occupation Zone had the committee University law lecturer was massively Ethics’. ELG’s first report is based on system. Following unification directly- defeated by former police superintendent research during the summer of 2002.10 elected mayors were introduced in most Ray Mallon. In Hartlepool the Ominously the six mayoral councils German local authorities. Most – unlike Independent DEM Stuart Drummond has included in the survey have organised here – have a recall procedure and the already asked the Electoral Commission’s decision-making in the following way: decision to start it lies solely with the Boundary Committee to cut the number ‘five out of the six have given exercise of local council except in three Lander (two of councillors from 47 to 33. In North functions to the executive; five have in the former East Germany) where the Tyneside a Conservative Chris Morgan given functions for the mayor to local population have the right to won due to the bitterness generated by exercise alone; four have given initiate the recall procedure. In the contest to decide Labour’s candidate, functions to members of the executive; Brandenburg 10% of full-time directly- which resulted in Deputy Leader Eddie two have given functions to committees elected mayors have lost their positions Darke trumping the Labour Leader Rita of the executive; five have delegated due to recall referendums. Moreover, the Stringfellow by one vote. In Lewisham functions to officers; and none have recall right ‘has led the local councils to similar divisions resulted in NLGN delegated powers to area be more attentive and responsive to Executive Committee member Steve committees’.11 Hence, as Simon Parker local debates and minority concerns’.15 Bullock beating Labour’s Leader Dave concludes: ‘The opinion that mayors Sullivan to the candidacy. In Stoke the would somehow transform the local Since the early 1990s, the neo-liberal call BNP got 18.67% of the votes cast and the political landscape does now seem rather in Germany for a “lean state” and the Independent Mike Wolfe – who was the naïve. Less than a year on from the first New Public Management promise to only candidate there to produce an mayoral elections, their impact on the bring about an economically efficient election manifesto – defeated Labour MP quality of services cannot be quantified. administration finally attracted a George Stevenson who had proposed to We will have to wait another three years growing attention across the political continue as an MP and run the city from until the next round of local elections to spectrum and on all levels of Westminster. In Bedford, Labour’s find out whether or not the mayors have government as ‘a panacea for coping candidate Apu Bagchi was defeated by the reinvigorated local voters’.12 with budget plight’.16 KGSt, a Independent Francis Branston and finally municipally funded non-profit in Mansfield DC, Lorna Carter was In addition, as Peter Keith-Lucas notes: institution, played a key role. Their defeated by Tony Egginton, an “New Steering Model” (NSM) proposed Independent candidate. The introduction of executive restricting the ‘responsibilities and government has undoubtedly activities of local government essentially Average turnout in the mayoral elections increased the potential for serious to an “enabling” function, while the was only 29.1%, which was less than the corruption. Direct election can delivery and provision of public services national turnout of 35% in the May produce mayors who have little and of public facilities should be guided 2002 local elections, and below the experience or understanding of the by “marketisation”, “outsourcing” and average turnout of 30% in these 11 areas public sector and are under intense “privatisation”’.17 The application of at the previous local elections. Only pressure to produce results, to do NSM has ‘cut costs’ and ‘the elected 32.8% of those who voted opted for the deal. Key democratic safeguards councils as well as the local citizens at Labour mayoral candidates; when non- have been compromised [...]. The large have been, to a significant extent, voters are included, only 9.4% of vaunted counter-balance of the bypassed and left out in the New- electors in the 11 areas voted Labour. scrutiny committee calling in Steering Model-related modernisation Hence the mayoral elections were an executive decisions for projects’.18 unmitigated disaster for New Labour reconsideration has proved whose candidates were successful in only ineffective, and a majority party can Hence Helmut Wollmann concludes that four out of the 11 contests. use its majority to neuter scrutiny.13 – despite the introduction of local 5 referenda and directly-elected mayors – international capital and have advanced 3 Burnham, P. ‘Globalisation, the ‘NPM-guided strategy to “outsource” the case for national left strategies.22 De-politicisation and “Modern” and “privatise” the provision of public Dexter Whitfield, moreover, provides a Economic Management’ in The Politics services and public facilities is likely to comprehensive new model of Public of Change: Ideology and Critique, edited whittle away the...scope of politically Service Management based on by W. Bonefeld and K. Psychopedis, decided local issues, thus terminating the WTO’s GATS agenda Palgrave, 2000 “de-politicising” the local area and with with new forms of public “hollowing out” the recent advances in ownership and in-house service 4 Such contractors, moreover, are quite local democracy’.19 Moreover, although provision.23 explicit about their motivation for ‘outsourcing and privatising local supporting directly elected mayors. E.g. government activities...has, so far, been On February 13th 2003 an agreement Capita considers it is ‘easier to develop still quite moderate’ in Germany and between the unions and government and negotiate effective leading edge... ‘still far from the kind of was reached to end the two-tier work partnerships...where the council has a “quangoisation” of local activities which force.24 The main reason for this strong leader and effective Chief the local government level has government U-turn was probably the Executive’; and that it helps ‘if the experienced in Britain...the Labour Party leadership’s need for leader is able to commit the council “outsourcing” and “privatisation” increased union funding in the face of and to have control over his/her group’ movement seems to pick up momentum plummeting membership. A statutory (Report of the Joint Committee on the all the more as it has now been Code of practice on workforce matters in Draft Local Government (Organisation additionally pushed by EU deregulation local authority service contracts will and Standards) Bill, HL Paper 102-1, HC policy’.20 create a level playing field for both ex- 542, TSO 27 July 1999, Appendix 10). council staff and new starters employed i.e. they want to do business with one The globalisation theorists upon whom by private contractors. The Code will person only without discussion by Peter Mandelson implicitly relies argue limit their scope to cut labour costs but backbench councillors. that OECD countries will converge in will probably increase business pressure pursuing such neo-liberal policies. to end national pay bargaining and 5 Formed in 1996 by a small group of Conversely, Wollmann predicts that substitute local pay rates. The senior figures in local government, with “North Middle European” local amendments sought by LCOLG to the significant support from private sector government such as in Germany – in Local Government Act 2000 – namely contractors involved in delivering contrast to the “Anglo”-type e.g. Britain allowing all councils the democratic public service, the NLGN’s stated aim is with a low political profile – will defend right to have the Fourth Way enhanced ‘to make local government more and expand its traditional multi- committee system if their local relevant and credible to local people’. I function model and strong political communities so wish and repeal of the argue that ultimately they want to see a profile. Secretary of State’s power to impose stronger shift toward the provision of mayoral referenda – are also now local state services by privatised supported by the Local Government services. Select Committee, the Local What next? Government Association and the 6 Cited in Parker, S. ‘Chains of office’, Commission on Local Governance. The Guardian, 12 March 2003. In Germany where local government is Hence ‘the challenge for the Left in the much stronger and privatisation has forthcoming period in relation to local 7 Latham, P. 2003, p. 21 and Appendix 4 been much more limited than in democracy is how to achieve creative England, directly-elected mayors were socialist autonomy as opposed to neo- 8 Department of Transport, Local generally introduced over 10 years ago liberal dependency’, the ‘essential Government and the Regions, Public with democratic safeguards to ensure precondition for which’, as New Attitudes to Directly Elected Mayors, 14 accountability. Hence Helmut Wollmann Labour’s US-Style Executive Mayors December 2001 considers that Germany is much better concludes, ‘is success in the campaign placed to resist ‘de-politicisation’ of local to reinstate representative democracy in 9 Municipal Journal, 17 May 2002 state activities via outsourcing and the Labour Party itself’ in which the role privatisation. Conversely, in England of affiliated trade unions will be 10 See Stoker, G., John, P., Gains, F., Rao, directly-elected mayors have been crucial.25 N., and Harding, A. Report of the ELG introduced without such democratic Survey Findings for ODPM Advisory safeguards in order to facilitate Group, 28 November 2002, Department ‘de-politicisation’ and provide ‘the of Government Manchester University, optimum internal management References www.elgnce.org.uk arrangement for privatised local state services’.21 The prospects for a similar 1 Latham, P. The Captive Local State: Local 11 Ibid., p. 44, my emphases challenge in England, therefore, appear Democracy under Siege, Socialist Renewal slim at first sight. However, since the new series, pamphlet No. 6, May 2001, 12 Parker, S. ‘Chains of office’, The mid-1990s a growing band of academic p. 23 Guardian, 12 March 2003 analysts have challenged the assumption that the internationalisation of capital 2Wesselius, E. Behind GATS 2000: 13 Keith-Lucas, P. ‘Curbing corruption in means there is very little space for Corporate Power at Work, Transnational local government’, Local Government national governments to adopt policies Institute, May 2002, p.6 Chronicle, 21 March 2003 which run counter to the logic of 6 14 According to LCOLG Steering erosion of local autonomy and offering different options to see if they Committee member Bernard Crofton. democracy and the privatisation of can have any effect. The old committee public services. system was simply not working on this 15 Wollmann, H. ‘German local level. It is surely incumbent on those of government under the impact of NPM I suspect the voters of Stoke-on-Trent, us who really care about democratic modernisation and new democratic Newham or Watford – or indeed London participation and the crucial role of citizen rights’, p. 16 (paper prepared for – would be immensely surprised to hear locally based structures to try new ideas the International Conference on this. Having observed the campaigns to promote them. Reforming Local Government: Closing and elections closely, I would argue that the gap between democracy and the motivation of at least some of those In addition there is evidence that name efficiency at Stuttgart University local people who supported a DEM was recognition and press interest regarding September almost the direct opposite of this. mayors is increasing, while council 26-27, 2002) business is being resolved faster. As Dr Latham himself points out, many Accountability is developing in new 16 Ibid., p. 11 referenda and elections took place ways, partly because people understand against a background of difficult local who is taking decisions. These are surely 17 Ibid., p. 12 circumstances and politics: corruption, not unhealthy trends. financial difficulties, local industrial 18 Ibid., p. 13 decline. The traditional parties suffered No one would disagree that the mayoral in some – but by no means all – places, agenda has not set the world of English 19 Ibid., p. 18 but there were often divisions and local government alight as some hoped. failures among them. I would argue then But it has offered an alternative to 20 Ibid., p. 19 that many people used the elections to communities where enough people felt vote for change. They often supported that change was needed. The more 21 Latham, P. New Labour’s US-Style the candidates who offered an agenda unusual results were motivated by Executive Mayors: The Private Contractors’ with which they identified. Of course it factors which are extremely important to Panacea, GMB Public Services Section, is true that turnout was not as high as comprehend when considering the the Labour Campaign for Open Local was hoped in many areas – precisely broader future of local governance. Government and Socialist Renewal, first because people are disengaged from local edition October 2002, second edition politics. However this does not mean Certainly much remains to be seen revised and updated January 2003, p. 4 that the results can be dismissed. They about what mayors can and can’t do for were not imposed directly by central our communities and whether they will 22 See the essays by Leo Panitch, Manfred government: they were the result of a spread any further. But eleven places in Bienefeld and Arthur MacEwan in democratic process – however flawed. England were prepared to try it, and we Between Globalism and Nationalism, The must understand the evidence emerging Socialist Register 1994, edited by R. Therefore I see no evidence for the from these places before we deem it a Miliband and L. Panitch, Merlin Press, argument that executive mayors are success or failure. 1994; and Colin Leys, Market-Driven more likely to outsource local services. Politics: Neo-liberal democracy and the Essentially, a mayoral candidate who Public Interest, Verso, 2001 stands on an outsourcing ticket will be elected if this is what enough of the 23 D. Whitfield, Public Services or Corporate electorate want. However none of the Welfare: Rethinking the Nation State in the mayors were elected on this type of Global proposal – and more importantly, none Peter Latham’s Economy, Pluto Press, 2001 Whitfield, have taken this route since their 2001, p. 237 and election. I think Dr Latham will find far response to Table 9.1, p. 256 more outsourcing going on in authorities with conventional structures The Case For 24 The Municipal Journal, 20 February 2003 than in those with elected mayors. The evidence simply does not support this Anna Randle’s paper focuses on four 25 Latham, P. 2003, p. 32 theory. aspects: why directly-elected mayors were introduced; the strength of the Dr Latham seems at times to be against opposition (which ‘wasn’t anticipated’); strong local leadership per se, citing the the unintended results of the mayoral decision-making arrangements of referenda and elections; and their mayoral councils as ‘ominous’. However, assumed achievements. This response research into the new executive concentrates on the two areas where the Anna Randle’s structures found that some Leader differences between us are greatest – the Cabinet executives are organised in very motives for introducing such mayors response to similar ways. Dr Latham is right that it and their alleged achievements. remains to be seen whether strong The Case Against leadership can make a difference to local Randle argues that the government’s democracy and services, but given the motive for giving such mayors the Dr Latham argues that directly-elected disassociation of people from local powers to set their own budgets, appoint mayors are part of a wider global politics, it surely has to be worth their own cabinets, pursue their own political agenda, characterised by the 7 manifesto commitments, and represent ‘constitutional barriers’ to be addressed in local elections, nor has overwhelming the public face of the council was in are those identified in my paper – support for the mayoral model been order to address ‘a significant democratic namely the amendments to the 2000 Act forthcoming; indeed only a small deficit at local level’. Yet, as Professor sought by LCOLG allowing all councils number of areas have approved the idea. George Jones stated in The Municipal the democratic right to have the This does not present a rosy picture, but Journal last year: ‘A single person cannot enhanced committee system and the nor should it be the rally cry for their reflect the complex social, ethnic, repeal of the Secretary of State’s power to outright rejection. economic, cultural and political diversity impose mayoral referenda. of our localities, especially our cities’. It is an often forgotten truism that The New Local Government Network England’s local democracy and local (NLGN), moreover, has consistently attitudes to it vary enormously across argued for the imposition of directly- the country. National politicians, elected mayors. Hence concentrating Concluding commentators and academics like to power – rather than diffusing it – has catalogue and stereotype local states and increased the democratic deficit. And the summary in doing so ignore the variations and Local Government Act 2000 – by nuances that are all too common. Whilst imposing one of the three executive It is clear that the New Local traditional political boundaries play a models on most councils – denies their Government Network (NLGN) and the role, local political consciousness and local communities the right to choose Labour Campaign for Open Local the extent to which local people have the fourth enhanced committee system Government (LCOLG) sit at opposite empathy or antipathy for the local state option favoured by the Labour ends in this debate. While NLGN view is very varied. Local political culture is Campaign for Open Local Government the introduction of directly-elected vitally important to this debate. On the (LCOLG). mayors as a positive step, LCOLG believe one hand it explains why a majority of directly-elected mayors are having, and places have not decided to choose the Sir Jeremy Beecham, Chair of the Local will continue to have a negative impact mayoral option; for many it just didn’t Government Association and a member on local democracy. However, this fit with local political culture and of the Labour Party’s National Executive debate highlights a rich array of issues traditions. However on the other hand, Committee, describes NLGN as ‘the that go beyond a simple pro or anti it is already suiting some locations, and provisional wing of the consulting and dichotomy. Indeed, the broader is seen to fit with the prevailing political contracting sector’. The 2000 Act framework to this debate spans the most culture. implemented NLGN’s original agenda fundamental issues surrounding local and I would argue that their ultimate democracy and its ongoing For CLES it is evident that if the ‘New aim – see Towards a New Localism modernisation. Localism’ advocated by NLGN has any (October 2000) – is to replace the direct future in Britain then it has to show a provision of local state services with Directly-elected mayors have the greater sensitivity to local political privatised services locally administered potential to relocate power and political cultures. It must be appreciative of the by executive mayors and cabinets control within a local authority. NLGN local differences and realise that the without backbench councillors. and LCOLG have clearly opposed changes must be driven in tandem with perspectives on this issue. For NLGN, the will of the local people. In this, Randle also asserts that there is now a most importantly, mayors can take on a DEMs should not be seen as an aspect of ‘consensus’ that directly-elected mayors community leadership role, represent modernisation, nor driven through with have ‘improved accountability, clarity the community as its figurehead and scant regard to local (and perhaps and speed of decision–making’. The achieve high levels of recognition. By traditional) political cultures. Nor latter are illustrated by citing Ray acting as a focal point in this way, local should it be offered as the carrot from Mallon’s pledge to cut crime by 15% cohesiveness can be enhanced. Randle which national benefits will flow. using community wardens – which ‘has also points out that DEMs can speed up Instead, DEMs should be seen as an already been exceeded’ – and the the decision making process, thus option that local decision makers and ‘quickly realised commitments in making local authorities more the local electorate have the Doncaster and Newham to remove responsive. Latham however views the opportunity to reject or accept. abandoned vehicles from the streets’. shifting of political control into the Traditional political values, strong local These modest achievements, however, hands of a single individual as an affront parties and a belief in local councillors did not require a directly-elected mayor. to local democracy and argues that this should be allowed to exist and not be For, as Heather Jamieson – Deputy Editor concentrates rather than diffuses power. quashed by the pressure to embrace of The Municipal Journal and resident of This concentration can have severe options which do not fit local political Lewisham – recently stated: ‘I can see repercussions for transparency and values and culture. Likewise, locations no impact that my mayor, Steve Bullock, accountability, and goes against any that feel that options such as DEM can has made which he would not have notion of fair representation for all. assist local democracy should not be done as leader of the council’. denied the choice. In this scenario it is Initially there was a great optimism likely that the existing heterogeneity Finally, as a democratic socialist, I about the introduction of directly- within English local democracy will disagree profoundly with Randle’s view elected mayors, to the extent that some flourish. Indeed the debate in this Local that the Office for the Deputy Prime saw them as the fill-up and energising Work serves to emphasise the way issues Minister needs to act against those force for local democracy. Now that the such as DEM assist in keeping councils with constitutions ‘designed to results are in we can see that DEMs have discussions about local democracy check mayoral power’. That is, the real not dramatically increased the turnout vibrant and alive. 8