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The Role and Effectiveness of Parish Councils in Gloucestershire

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CORE Metadata, citation and similar papers at core.ac.uk Provided by University of Worcester Research and Publications The Role and Effectiveness of Parish Councils in Gloucestershire: Adapting to New Modes of Rural Community Governance Nicholas John Bennett Coventry University and University of Worcester April 2006 Thesis submitted in fulfillment of the requirements for the Degree of Master of Philosophy 2 3 TABLE OF CONTENTS CHAPTER TITLE PAGE NO. ACKNOWLEDGEMENTS 8 ABSTRACT 9 1 INTRODUCTION – Research Context, Research Aims, 11 Thesis Structure 2 LITERATURE REVIEW I: RURAL GOVERNANCE 17 Section 2.1: Definition & Chronology 17 Section 2.2 : Theories of Rural Governance 27 3 LITERATURE REVIEW II: RURAL GOVERNANCE 37 Section 3.1: The Role & Nature of Partnerships 37 Section 3.2 : Exploring the Rural White Paper 45 Section 3.3 : The Future Discourse for Rural Governance 58 Research 4 PARISH COUNCILS IN ENGLAND/INTRODUCTION TO 68 STUDY REGION 5 METHODOLOGY 93 6 COMPOSITION & VIBRANCY OF PARISH COUNCILS 106 IN GLOUCESTERSHIRE 7 ISSUES & PRIORITIES FOR PARISH COUNCILS 120 8 PARISH COUNCILS - ROLES, NEEDS & CONFLICTS 138 9 CONCLUSIONS 169 BIBLIOGRAPHY 190 ANNEXES 1 Copy of Parish Council Postal Questionnaire 200 2 Parish Council Clerk Interview Sheet & Observation Data 210 Capture Sheet 3 Listing of 262 Parish Councils in the administrative 214 county of Gloucestershire surveyed (Bolded parishes indicate those who responded to survey) 4 Sample population used for Pilot Exercise 217 5 Listing of 10 Selected Case Study Parish Councils for 218 further observation, parish clerk interviews & attendance at Parish Council Meetings 4 LIST OF MAPS, TABLES & FIGURES MAPS TITLE PAGE NO. 1 Administrative boundaries in Gloucestershire 79 2 Parishes of the North Cotswolds 80 3 Parishes of the Central Cotswolds 81 4 Parishes of the South Cotswolds 82 5 Parishes of the Forest of Dean and Severn Vale 83 6 Population Densities by Ward in South West England 87 TABLES 1 Roles and Functions: County and District Councils 74 2 Functions and Powers of Parish Councils in England 76 3 Comparison of Population Statistics by Region & Selected 85 Counties 4 Relative Population Change by Age Cohort: 1991-2001 - 86 Gloucestershire 5 Local Authority Housing, Households & Labour Market 88 6 Occupation Groupings by Age Cohort: Gloucestershire 89 2001 7 Distance traveled to Workplace: Gloucestershire 2001 91 FIGURES 1 Respondents to Parish Council Survey 107 2 Representation at Parish Council Meetings 111 3 The need to reform Parish Councils 115 4 Awareness of the “Quality Parish” concept 116 5 Declining Rural Services 123 6 Lack of Affordable Housing 124 7 Poor Residential Planning 125 8 Incidence of Crime 129 9 Traffic Pollution/Congestion 130 10 Environmental Damage 131 11 Activities for the Young 133 12 Services for the Elderly 134 13 Representing the views of Parishioners 139 14 Parish Council as planning mediator 142 15 Parish Council as Social Welfare Provider 144 16 Have parish Councils more power today than in the past? 148 17 Have Parish Councils got more responsibilities now than 149 in the past? 18 Should Parish Councils be given more funding? 150 19 More training needed for Parish Council members 152 5 20 Reasons why training was not taken up by parish council 154 members 21 Website Home Page of Rodborough Parish Council 155 22 Helpfulness of County Council 159 23 Helpfulness of District Council 160 24 Helpfulness of GAPTC 161 25 Relations with neighbouring parishes 162 26 Helpfulness of ACRE 163 27 Relations with DEFRA 164 28 Relations with Countryside Agency 165 6 7 ACKNOWLEDGEMENTS The Author would like to thank the following individuals, organisations and institutions for their support, input, opinions, advice and guidance during the evolution of this research thesis: • Dr David Storey (Research Supervisor, University of Worcester) • Dr Richard Yarwood (Former Research Supervisor, University of Plymouth) • Dr Bill Edwards (External Supervisor, University of Wales, Aberystwth) • Helen Tabinor (Graduate School, University of Worcester) • The parish clerks and parish council members of all 130 parish councils and/or meetings who returned the postal survey. Particular thanks is also given to the parish clerks and parish council members of the 10 parish councils selected for further observation – Minchinhampton, Stow on the Wold, Lydney, Sapperton, Stanway, Winchcombe, Guiting Power, Notgrove, Snowshill and Cirencester • The parish clerks of 10 parish councils located in North Wiltshire and South Worcestershire selected for the trailing of the pilot postal survey. • The Staff at the FCH Central Library of University of Gloucestershire • Neighbourhood Statistics Division, Office for National Statistics, Newport, Gwent. • My employer, the Ministry of Defence, for the support extended to me in terms of leave from work to complete my studies. • My best friend and flat mate, Paul Sherwood, for his patience and understanding during the times when I demanded solitude. 8 ABSTRACT This thesis examines the changing roles of rural parish councils in the context of the Government White Paper on Rural England (DEFRA, November 2000). This suggested that new responsibilities should be given to Parish Councils within rural policy and planning frameworks. Concepts such as ‘Partnership’, 'Parish Plans' and ‘Quality Parish Councils' were mooted as possible vehicles to promote greater community participation and increased local 'empowerment' in the governance of rural communities. The proposals for parish councils are part of a new 'integrated approach' to rural planning which seeks to combine the state and voluntary sectors through the ideals of partnership. The research examines the appropriateness and willingness of parish councils in Gloucestershire to fulfill the new responsibilities set down in the Rural White Paper and the key they have as ‘agents’ of government. It explores and assesses how far they have adjusted to the new forms of governance set out by the White Paper, and considers how they have adapted alongside greater voluntary and community activity, focussing in particular on the new forms of partnership distributed across the countryside. The research found that the effectiveness of parish councils in Gloucestershire is extremely varied and often piecemeal in nature, influenced by a wide variety of social, economic and geographical factors. Both individual decisions and wider structural 9 factors, including the opportunities provided by self-interest, influence the variations in the type and level of participation in community leadership. In Gloucestershire, the emergence of new organisations and actors in rural community governance has generated only a moderate shift in the way parish councils operate. Parish councils consider that they have very little influence in the broader sphere of rural governance structures. Recent government legislation regarding community involvement, partnership and participation has been slow to filter down to a large number of parish councils in the county. The geography of partnership initiatives across the UK has emerged as a very uneven map of rural governance. This “map” is mirrored in the incidence of effective partnerships within rural politics in Gloucestershire. Indeed the complex nature of participation in community governance and leadership revealed by the research confirms the need for further examination of the shift from “joined up” to “joining up” partnerships, and the incidence of partnership marginalisation felt across many parish councils in the county. Some signposts for future research are also identified. 10 CHAPTER 1: INTRODUCTION 1.1 - Research Context English parish councils have long been established in the process of local rural decision making. Although members are accountable at a local level, it has been suggested that the withdrawal of state services and the promotion of active- citizenship and community participation (Kearns 1992) have encouraged elite groups to colonize local politics and to pursue their own ideas of rural community life (Cloke & Goodwin 1992; Philips 1994). Since it has been suggested that parish councils should be given greater powers of local governance it is timely to examine them in the light of these concerns. Little is actually known about the role and effectiveness of parish councils. To date, studies of rural planning have mainly focussed on either state-led initiatives ('top down') or voluntary action ('bottom up'). Whilst state led initiatives have been criticized for their inflexibility (Cloke, 2003), voluntary action is widely perceived as piecemeal and ineffective (McLaughlin, 1987). Both approaches have been shown to favour the interests of local and national elite's (Cloke & Little, 1997). This thesis examines the changing roles of rural parish councils in the context of the Government White Paper on Rural England (DEFRA, November 2000). This suggested that new responsibilities should be given to parish councils within rural policy and planning frameworks. Concepts such as ‘Partnership’, 'Parish Plans' and ‘Quality Parish Councils' were mooted as possible vehicles to promote greater community participation and increased local 'empowerment' in the governance of 11 rural communities. The proposals for parish councils are part of a new 'integrated approach' to rural planning which seeks to combine the state and voluntary sectors through the ideals of partnership. 1.2 - Research Aims The aims of the research are as follows: 1. To examine the appropriateness
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