plus… Jeff Jones Labour’s leadership election Nicola Porter Journalism must fight back Barry Morgan Religion and politics Options for the referendum Andrew Shearer Garlic’s secret weapon Gill David Culshaw Decline of the honeybee Gordon James Coal in a warm climate Morgan Katija Dew Beating the crunch Gear change for our civil service Andrew Davies The Kafka Brigade Peter Finch Capturing the soul

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For information on IWA events and publications please visit our website at www.iwa.org.uk or call 029 2066 0820 winter 2009 Production Challenges facing Editor: John Osmond Assistant Editor: Stevie Upton the next first minister Associate Editor: Geraint Talfan Davies If will be remembered as the man who embedded the National Assembly in the minds, if not altogether the hearts of the people of Wales, then Administration: Helen Sims-Coomber, Clare Johnson the legacy of his successor as First Minister will be defined by how he or she deals with three looming challenges. The first is spending cuts. Second is the Design: intractable problem of Welsh economic performance. Third is negotiating the www.theundercard.co.uk referendum that will be the next step in the unfinished business of creating a To advertise proper Parliament for Wales. Tel: 029 2066 6606 We analyse prospects for the Welsh budget on pages 30-31. The outlook for Institute of Welsh Affairs the next three years presents a sharp contrast to the relative largesse of the first 4 Cathedral Road decade of devolution. The ’s budget will fall from £15.38 Cardiff CF11 9LJ billion to £14.18 billion in real terms, after taking account of inflation, a Tel: 029 2066 0820 cumulative reduction of around 9 per cent. What this will mean for individual Email: [email protected] departments can be gleaned from the 2010-11 draft budget which we also publish www.iwa.org.uk in summary. In terms of the big spending departments this shows Environment The IWA is a non-aligned independent think- and Housing, the Economy and Education taking the biggest hits, with cuts of tank and research institute. Members (annual 10.2 per cent, 4.6 per cent and 3.4 per cent respectively next year. Meanwhile subscription £40) receive agenda three times Social Justice and Local Government have a 2.25 per cent rise and Health and a year, can purchase reports at a 25 per cent Social Services 0.2 per cent. reduction, and receive discounts when attending The Health and Social Services budget is by some measure the largest and IWA events. has consistently risen over the past decade at rates well above inflation. In the same period education spending has consistently fallen in relative terms. The Branches North Wales Secretariat time has come to alter this balance. It is a tough call, but it is time for rigorous c/o controls of health spending to allow education to catch up. In any event much of 6 Maes yr Haul, Mold, CH7 1NS spending in the acute hospital sector is merely dealing with the consequences of Tel: 01352 758311 unhealthy lifestyles resulting from obesity, smoking, lack of exercise and much more, as we report on pages 62-65. Spending on education is the best option for Gwent Secretariat dealing with these underlying causes of Wales’s poor health. c/o Chris O’Malley At the same time the next First Minister should champion the case for University of Wales, Newport, Caerleon Campus PO Box 179, Newport NP18 3YG replacing the Barnett Formula that calculates changes in the Welsh block grant, Tel: 01633 432005 with one based on need rather than population. Three authoritative reports have made this case in recent months – from the House of Lords Select Committee, West Wales Secretariat the Calman Commission in and our own Holtham Commission. c/o Margaret Davies Estimates vary but unless a change to a needs-based formula for calculating our Principal’s Office, Trinity University College, block grant takes place, Wales is set to lose out by at least £300m in the coming Carmarthen SA31 3EP year and more thereafter. Tel: 01267 237971 The Welsh Government’s levers on the economy are restricted. In the current Secretariat recession it has shown some fleetness of foot in developing the £48m ProAct c/o Beti Williams scheme in which companies on short time working can receive up to £4,000 per Department of Computer Science, employee to keep them in employment. Elsewhere, however, the Government has Swansea University, Swansea SA2 8PP tended to be more aspirational rather than effective in developing the ‘knowledge Tel: 01792 295625 economy’ in key sectors such as the bio-sciences, renewable energy and the Cardiff and Valleys Secretariat creative industries. Much of this points to a need for more spending in higher c/o Meilyr Ceredig education, yet this has been falling in relative terms in recent years. Again there IWA, 4 Cathedral Road tough decisions are needed to recalibrate the economic and education budgets. Cardiff CF11 9LJ Finally, there is the constitution. The next First Minister should make the case Tel: 029 2066 0820 for more powers for the National Assembly in terms of the arguments listed Wales in above. We need more effective governing institutions to give us the tools for c/o Robert John improving our education and economy, and tackling our unacceptably high levels First Base, 22 Ganton Street, London W1F 7BY of morbidity. We need a Parliament for Wales, endorsed by a referendum, to give Tel: 020 7851 5521 us the clout to make the case for a fairer share of resources from London. contents opinion news obituary outlook

Winter 2009 No. 39

Cover image © John Briggs

opi nion polit ics economy international

6 Nationhood and 18 Fresh air in Cathays 30 Spending trauma 39 Putting citizenship common humanity Park says the centre stage Barry Morgan explains why John Osmond hears how Welsh Government should Roger Thomas asks what Christian values have the new Permanent look for alternative sources our public services can propelled him to the Secretary Dame Gill of funding to plug cuts in learn from Denmark and forefront of Welsh politics Morgan is dealing with its budget over the next New Zealand Whitehall arrogance four years news 42 Royal scholarships will 21 Good timing 32 Road to resilience help economy punch 9 Latest news from the Dafydd Wigley outlines the Peter Davies puts the above its weight IWA and beyond options for when to hold a spotlight on the Welsh Dylan Jones-Evans on a referendum on extending Government’s Green new initiative to bring 11 Patrick Hannan, the Assembly’s powers Jobs Strategy global talent to Wales 1941-2009 Geraint Talfan Davies on a ASSEMBLY SPECIAL 44 Airconditioning for man who recorded the first 24 Infant Parliament the planet cut of our history Adrian Crompton Ru Hartwell reports on an provides an insider’s view initiative to sustain an area of law-making in the of tropical rainforest ‘The National Assembly size of Wales’

26 Legislative fog science Marie Navarro and David 34 Coal in a warm climate Lambert probe the Gordon James says coal 46 Garlic’s secret weapon boundaries of the National use must be reduced if we Andrew Shearer on why outlook Assembly’s powers are to stand a chance of garlic is a Cardiff company’s combating global warming new secret weapon to 12 ’s 28 Clearing lines of combat climate change leadership election communication 36 Questioning the 13 Paddling in a shallow Peter Hain says the nuclear option feature gene pool Assembly’s new powers Hugh Richards reveals 15 Taking control of our are delivering much more uneasiness inside the 48 Quality analysis own resources than their critics allow Assembly Government from the iwa 15 Adapting to climate change about the next generation 17 Time for Welsh journalism of nuclear reactors to fight back

4 | www.iwa.org.uk environment social policy newsflash

50 Life source 66 Beating the crunch Coming up… David Culshaw reports on Katija Dew describes • Branding Wales: How Does Wales Add Value? the decline of the honeybee how a Welsh financial Swansea Branch Conference movement is benefiting 19 November 2009 LANDSCAPE SPECIAL from the credit crunch 52 Spiritual resource 6.00pm-8.00pm Haldane Building, Swansea University Ruth Williams finds much to 68 The Kafka Brigade Keynote speakers: Neil Burchell, Rachel’s Organics; James applaud in a new IWA report comes to Wales Horsham, Brand/68; Dan Langford, Acorn; Adrian Palmer, on the Welsh landscape Andrew Davies describes Professor of Marketing, Swansea University. an innovative approach to 54 Grand Canyon of the improving public services • A Green Pathway Out of the Recession for Wales industrial revolution Day Conference - 1 December 2009 David Llewellyn describes culture Glamorgan Building, Cardiff University a project that is making Keynote speakers: AM, Deputy First Minister; a Regional Park out of 70 Capturing the soul Peter Davies, SDC Commissioner; Chris Jofeh, Ove Arup; Michelle the Valleys Peter Finch sits for Wales’s Thomas, Eversheds; Tim Williams, Welsh Automotive Forum. most successful portrait 56 Living with our painter David Griffths • Life Under the Tories ancestors Day Conference - 4 December 2009 Paul Sambrook and Jenny Glamorgan Building, Cardiff University Hall on a 25-year project to record the heritage of Keynote speakers: AM, Leader ; Cheryl Gillan MP, Shadow Secretary of State for our Wales; Sir Emyr Jones-Parry, Chair, All-Wales Convention; Professor Robert Hazell, Director, Constitution Unit, University education College, London; Professor Richard Wyn Jones, Director Wales Governance Centre, Cardiff University; Professor James Mitchell, 58 Stressed, burnt Department of Politics, University of . and dropping out 72 A new presence in the Dave Egan argues that we creative landscape • Learning Pathways for Wales need a new approach to Meic Llewellyn profiles a Day Conference - 9 February 2010 educating our 14-19 year olds Welsh cultural entrepreneur WJEC Building, Llandaf, Cardiff Keynote speakers: Sir Adrian Webb, Chair of the ‘Webb’ 14-19 60 Combating the culture 75 Underpinning the Review and former Vice Chancellor, ; of numbers national psyche Gareth Pierce, Chief Executive, WJEC; Professor David Egan, Stevie Upton advocates Michael Houlihan outlines Director Centre of Applied Education Research, UWIC; Stevie a broader approach to how National Museum Upton, IWA Research Officer. knowledge exchange in Wales is responding to our universities the recession Just published

health 77 Amlwch and • Living With Our Landscape Report of a two-year IWA study on the future of our Mynydd Parys protected landscapes in association with the Countryside 62 Lifestyles health Bryan Hope explores the Council for Wales. epidemic history and development £9.99 Dyfed Wyn Huws says of Wales’s copper kingdom • Critical Mass: The Impact and Future of Female Representation Welsh Government in the National Assembly for Wales proposals to reform the last word By John Osmond. organisation of public £7.50 NHS provision need a 80 Our tribal prejudices health warning Peter Stead

All rights reserved. No part of this publication may be reproduced, stored in a retrieval system or transmitted in any form or by any means, electronic, mechanical, recorded or otherwise without the permission of the publisher, the Institute of Welsh Affairs. ISSN 1464-7613 More information: www.iwa.or g.uk contents opinion news obituary outlook

Nationhood and common hu man ity Barry Morgan explains why Christian values have propelled him to the forefront of Welsh politics

There is a commonly held view that two aspects of their child’s life, rather found unacceptable or untouchable, religion and those who represent it, than that life as a whole. whether for religious, moral or political Archbishops and the like, ought to And if one studies the Scriptures only reasons, whether they were Gentiles or restrict their public pronouncements cursorily, one soon discovers that God tax collectors. In the end He died and concerns to spiritual matters. does not restrict His concern to religious condemned by both religious and secular matters, for this very reason. Through his authorities because He was regarded as They assume there are two aspects to prophets, the God of the Old Testament a threat to them. life, the spiritual and the temporal. The castigates the people of Israel for thinking And that’s why Christians believe former has to do with God, faith, prayer that all He requires is right worship – they have a concern for every aspect of and the interior life, whilst the latter is what the prophets called sacrificial burnt life, be it to do with health, education, concerned with the material sphere of offerings - whilst ignoring the needs of the war, housing, asylum seekers or work, politics and the whole business of poor, widows, orphans and strangers in governance, indeed any aspect that is living in the world. Put more crudely, this their midst. In fact, the prophets proclaim crucial to a person’s or a community’s view contends that politics and religion that what God requires is not sacrifice but wellbeing. Unless the Gospel, and the do not mix. Religion should be restricted mercy, and that He hates religious feasts very word means ‘good news’, has to home and church and excluded from that are divorced from just living. relevance to every aspect of life, then it the public square, for religion is what The New Testament goes a step has no relevance to any aspect of it. individuals do with their leisure time. It is further. Its central tenet is that in Jesus There is no doubt that our country’s a marginal and private pursuit for those Christ, God became man (incarnate) beliefs in freedom and equality and the who like that kind of thing. because in the words of one theologian, desire to remove poverty, injustice, However, for Christians and indeed “matter matters to God”. God is so oppression and slavery are based on for people of other faiths, this dualistic concerned about the world – the world of Judeo Christian values. view of the universe is incompatible with flesh and blood - that He becomes part Jesus’ mission was to bring God’s believing in a God who is responsible for of it to show His solidarity with it. That’s Kingdom and its values to transform the bringing the world into being. Since what the incarnation means. So Jesus world, not to save souls from the world. Christians believe that all things have their begins His public ministry at Nazareth Hence the Lord’s Prayer declares, “thy origin in Him as Creator, nothing can be with these words, “God has anointed me kingdom come on earth as it is in heaven”. separate from Him and all things have to to preach good news to the poor. He has So there is every reason for every Christian relate back to Him since. Since He sent me to proclaim release to the to get involved in the life and death issues brought it into existence in love He has captives, recovery of sight to the blind, of our time. Of course, that does not mean a concern for every aspect of the world. and to set at liberty those who are Christians do not differ from one another Christians also believe that human oppressed” (Luke 4.18). or that any Christian viewpoint is infallible. beings are made in God’s image and are Jesus, who reveals to us as much of All I am arguing is that because of their His sons and daughters. Consequently, God as it is possible to be revealed in a theological and philosophical view of the every aspect of our lives matters to Him human being, spent most of His ministry world, Christians have every right to be because we bear the very stamp of His preaching to the poor and marginalised involved in the issues of our time. They nature. To take a contrary view is like rather than remaining inside the are concerned, as God is, for the good of telling a human parent that he or she synagogue and temple. He reached out society as a whole, not just for their own should restrict their concern to one or to all those people whom His society partisan interests.

6 | www.iwa.org.uk Barry Morgan in June on the steps of the launches Cymru Yfory’s petition calling for primary law making powers for the National Assembly. So far it has attracted 3,000 signatories, potential activists in the forthcoming referendum.

Which brings me to my involvement come into existence by 2011. religious leaders in Wales. As well as in politics with a small p. In the end This remains the clearest and most wanting the devolution process moved politics is about how we organise ourselves coherent vision of the future we have, on, Cymru Yfory’s purpose is to inform in society. So, for example, if people are and the one that offers the greatest clarity Welsh civil society about the significance excluded because of their colour of skin about how Wales should be governed. of enhanced devolution. To this end, we or their gender then the Gospel is of It is important that people remember have organised conferences, published a relevance. And it is equally of relevance that a Commission with no axe to grind lay person’s guide to the National how we organise ourselves as a nation. had concluded that a National Assembly Assembly’s power and procedures and In March 2004 an independent in Wales, with primary law making submitted recommendations to the commission was set up by the First powers, would make for more Convention under the chairmanship of Minister under the chairmanship of Lord transparency in government. It would Sir Emyr Jones Parry. Ivor Richard to review the scope of the allow for a more integrated policy Cymru Yfory bases its powers of the Welsh Assembly as to making process and enable the needs of recommendations for a satisfactory whether they were adequate to meet the the people of Wales to be met in a better constitutional settlement for Wales on a needs of modern Wales. The Members way than they were met then and indeed number of inter-linked fundamental of the commission included politicians now. This document about the principles. These are compatible with the from every party, academics and others governance of Wales is unique in the principles of good governance identified who knew a great deal about Wales and history of Wales. by the European Commission in its 2001 every aspect of its life. They were Cymru Yfory - Tomorrow’s Wales White Paper on Good Governance. unanimous in three broad conclusions: was set up as a positive response to the They are that our governance recommendations of the Richard arrangements should be: 1. Wales should have a legislative Commission Report with the aim of assembly separate from the executive. encouraging and supporting wider • Stable 2. For the Assembly to exercise its discussion in Welsh society. • Effective and efficient power and ensure proper scrutiny That is why when I was approached • Comprehensible and transparent there needed to be an increase in by several politicians from different • Encourage maximum participation Assembly Members from 60 to 80. parties and by others in Welsh civil • Respect the autonomy of the 3. There should be a single transferable society, I agreed to chair it, having National Assembly voting system and that all this should consulted my brother bishops and other

winter 2009 | 7 contents opinion news obituary outlook

We believe that the case for moving policies presently work. Welsh or whatever one’s nationality ahead to greater legislative powers under As a result of the above failings, the happens to be, and yet to realise that we Part 4 of the 2006 Wales Act is present arrangements are likely to deter belong to one common humanity. The overwhelming. It is clear to us that the people from becoming involved in two things are not incompatible. It is current devolution model, based as it is matters of public concern. Whether possible to be both fervent in one’s own on the piecemeal devolution of legislative citizens are being asked to take an active identity and nationality and yet also to powers through LCOs and Acts of part in lobbying, or more passively as be internationalists. The thing we need Parliament, does not live up to the voters and users of public services, the to do is to preserve our identity as a standards of good governance. present constitutional structure nation and move towards greater self The process of conferring powers discourages rather then encourages government without allowing all of that through LCOs and Acts of Parliaments public participation. to become exclusive and destructive. is inherently unstable. Change in the Cymru Yfory believes that None of this is incompatible with powers of the Assembly and the role of Implementing Part 4 of 2006 Act would thinking that Wales needs a further the Assembly in the broader governance bring about a vast improvement on the measure of self government. of Wales is built into the system. Part 3 current arrangements under Part 3. By For me, it is possible to be saved of the 2006 Act was designed to be a conferring a clear and broad range of from narrowness and exclusivity by the transitional mechanism. As such it is legislative powers on the National realisation that the whole human race is unwieldy, and only works after a Assembly, implementing Part 4 would created in God’s image. He cares for all fashion. It cannot be sustained as the provide a settlement that had a people regardless of their creed, religion long-term basis for devolution for Wales, meaningful prospect of being stable and or colour. I want to argue that Wales’s as it is so inherently flawed and is clear. In our view it would also sense of national identity, nationhood extremely time consuming. significantly improve the stability, and heritage are gifts from God in which It also makes routine policy issues efficiency and effectiveness, we should rejoice and which for Wales constitutional ones, blurring the line comprehensibility and transparency of would be enhanced with further self between the fundamental issues and devolution in Wales as well as determination. At the same time these more day-to-day ones. Moving to Part 4 encouraging wider public participation in gifts that we have been given, the would create the basis for a stable the Assembly’s activities. The autonomy distinctiveness with which we have been settlement that could prove durable. of the National Assembly would also be marked, are not for ourselves alone but In themselves the present respected under the new provisions. It is for the enrichment of humanity. As arrangements lack effectiveness, efficiency, for these reasons that we support moving Waldo Williams put it in his poem and so undermine the effectiveness and as soon as practicable to a referendum Brawdoliaeth (Brotherhood): efficiency of the National Assembly. The on implementing Part 4 of the 2006 legislative process becomes lengthy and Government of Wales Act. Mae rhwydwaith dirgel Duw convoluted, and is worsened by the Even then Wales would not have Yn cydio pob dyn byw; confusion of responsibility between UK parity with Scotland. This is not just a Cymod a chyflawn we and devolved institutions for a wide matter of how many policy areas are Myfi, Tydi, Efe. range of policy matters. devolved but how powers are defined. Myfi, Tydi, ynghyd The system provides poor The 1998 Scotland Act uses the Er holl raniadau'r byd comprehensibility and transparency. It ‘reserved powers’ model, whereby the Efe'n cyfannu'i fyd. is hard to understand which level of Scottish Parliament is given legislative government is responsible for what, or and executive competence in all areas God’s mysterious net why. This is worsened by the piecemeal except those specifically reserved to Binds every living person; way in which functions are devolved to Westminster. On the other hand the Reconciliation and the whole web the National Assembly and Welsh 2006 Act gives the National Assembly Of me, you, Him. Government. The line between executive competence only in those areas listed as Me, you together and legislative devolution is similarly having been devolved. Nor does Part 4 Despite the world’s divisions unclear, and difficult to understand. address the number of Assembly He makes whole his world Moreover, it is hard for those outside Members and the need for proper government to understand why things scrutiny of legislation. work in the way they do, or whom they There are those who think that all of should lobby to change things or whom this is rampant nationalism. To my Barry Morgan is they should hold accountable for the way mind, it is possible to be proud to be and chair of Cymru Yfory.

8 | www.iwa.org.uk New s Critical mass A new IWA report warns that and for Plaid election and have already been 83); Vale of Clwyd (majority gender parity in the National Cymru debated the report. replaced by male candidates. 92); Delyn (majority 510), Assembly is destined to fall Hitherto, the Assembly Another three have Clwyd South (majority dramatically following the has had close to 50 per cent announced that they will not 1,119), (majority 2011 election. The result will of female AMs. However, be contesting their seats and 1,192), and Wrexham be to threaten the feminisation the report predicts that this selection contests to replace (majority 1,250). The of the Assembly’s style, tone will drop to near 30 per them are pending. challenging party in all these and working patterns. cent following the 2011 2. The Labour Party has constituencies is the Welsh The report, Critical Mass: election, for the following ceased requiring all-women Conservatives and they are The Impact and Future of reasons: short-lists to choose new likely to adopt male Female Representation in the Assembly candidates since candidates in at least half of National Assembly for Wales , there are currently more the six seats. says the presence of large Labour female than male 5. Dependence on positive numbers of women has meant AMs and its objective is to action to select female that it “has avoided any charge attain a ‘gender balance’ candidates in only two of the of being ‘institutionally’ male within the Labour Group four parties, with a partial dominated in ways that can be rather than within the retreat from positive action in levelled, for example, against Assembly as a whole. both of them. the House of Commons which 3. has changed has traditionally been a its selection method for For these reasons the number masculine place, with choosing List candidates of women in the National procedures that militate which has the effect of giving Assembly will fall by around against female participation”. men a greater opportunity for eight following the 2011 The report was published taking the lead List slots. This election, from 28 (or 47 per at the launch of the new IWA is likely to have the effect of cent) to 20, and possibly by Women group in the Senedd replacing at least one female an even greater number in November when a cross- member with a male, in the depending to a great extent party panel of AMs North Wales List Region. on the electoral fortunes of comprising , 4. A number of key marginal the Labour Party. leader of the Welsh Liberal 1. Two female Labour AMs – constituency seats are all Democrats, for for Cardiff South and Penarth currently held by Labour Labour, Nick Bourne, Leader and Pontypridd – have stated female AMs. These are the ‘Critical Mass’ is available of the Welsh Conservatives, they will not be contesting the (majority from the IWA at £7.50

IWA appoints new research officer

The IWA has appointed a School of City and Regional also has a deep-seated Cardiff University academic, Planning, and also worked as interest in the value of higher Stevie Upton, as its Research a Research Associate in the education and the role of Officer. She replaces Nick School. Prior to this she universities in society. Morris who has left us after received her Bachelor’s Her first major project with two years to work as a Degree in Geography from the IWA is examining the researcher with the the University of . educational performance of Conservative Group in the A childhood spent Welsh school children aged 11 National Assembly. holidaying in to 16, compared with the Stevie, who was brought piqued Stevie’s interest in the relatively higher levels of up in Yorkshire, joins the regeneration of the south attainment elsewhere. The IWA after six years at Cardiff Wales valleys, and she has IWA is currently carrying out a University. She holds an MSc subsequently been involved statistical survey to investigate Stevie Upton, the IWA’s new in Regeneration Studies and in a number of research educational performance in Research Officer, contributes to a PhD from the University’s projects on the topic. She Wales’ 222 secondary schools. this issue of Agenda on page 60

winter 2009 | 9 contents opinion news obituary outlook

Connecti ng Card iff Inspire with the Val leys Wales

had 22 local authorities. Local The IWA is planning to government reorganisation launch an Inspire Wales was unavoidable in the next Awards in January 2010 to decade and perhaps during the raise the profile that Welsh National Assembly’s fourth men and women are making term following 2011. The case to our society and to for a city region centred on encourage active citizenship. Cardiff should be part of the The aim is to recognise and thinking that was gathering reward excellence, to underline pace around another shake-up the importance of innovation in of Welsh local government. the public, private and The panel that launched the IWA’s Cardiff and Valleys Branch: from left to right, former Cardiff Lord Mayor Cllr Russell Goodway; the new Branch Chair He warned, however, that voluntary sectors, to encourage Huw Roberts; Professor Kevin Morgan of Cardiff University; Julie Lydon, while the advantages of a city active involvement in Welsh Deputy Vice Chancellor, University of Glamorgan; and Janet Jones, Chair of the Federation of Small Businesses Wales. region approach were clear civil society, and to champion enough for Cardiff, the case equal opportunities. The Cardiff and its Valleys be a barrier. The only way to had to be made for the Valleys. categories will reward those hinterland should become a break the deadlock that He did not believe that people in a variety of different sectors single unit of local government prevents us moving forward is in the Heads of the Valleys including science, education, with a directly elected Mayor at to create a city regional would ever see Cardiff as the the arts, the environment its head, according to Cardiff’s government with a directly magnet for jobs that people in and business . former Lord Mayor, Russell elected mayor who could the lower end of the Valleys This new project, which is Goodway. He was speaking at come from anywhere in the did. Any city region scheme being undertaken in association the launch of the IWA’s new region. Only an initiative on had to have a built-in with Media Wales, owners of Cardiff and the Valleys Branch this scale could change our distribution of investment the , will depend in the University of Glamorgan direction of travel. across its area. Mid-Valley on sponsorship from private in October in a debate with “We cannot leave this to towns such as Pontypridd, and public organisations. Professor Kevin Morgan on Confirmed sponsors to date ‘Cardiff and the Valleys: One include: Admiral, Wales and Place or Two?’ “What is the long term West Utilities, Tailored In a lively exchange, in Solutions Recruitment, which the two speakers future for the Valleys? ” Western Power Distribution managed to agree on the and Buy As You View. benefits of south-east Wales Sponsors are being asked developing into a more chance,” he declared. “As Caerphilly, Blackwood, and not only to underwrite a cohesive city region, Goodway things stand our governance Oakdale would need to be category, but to encourage said politicians fearful of losing arrangements in Wales do not seen as complementary entrants in that field. With the influence were standing in the meet our economic needs.” development poles to Cardiff. support of a cross-section of way of his vision. It was Professor Morgan, of “What is the long-term sponsors from the private and extremely difficult to get Cardiff University, said south- future for the Valleys?” he public sectors, we anticipate council leaders in neighbouring east Wales currently suffered asked. “Surely it can only be a this new award scheme will authorities to stop thinking in from a “cacophony of voices combination of being a quickly become recognized as competitive terms. “We have all straining to be heard” – 10 commuter belt for Cardiff, but a major event in Wales’s to change that outlook,” he local authorities, including two combined with an investment national calendar. To be said. “Across Europe cities. He said if he went strategy that genuinely involved in sponsoring an successful regions have abroad and came back after spreads resources and benefits award contact Emma Brennan successful cities at their heart. ten years he did not believe he across the region.” on 029 20660820 or email “The M4 does not have to would return to a country that [email protected].

10 | www.iwa.org.uk Obituary

Patrick Hannan 194 1–2009 Geraint Talfan Davies on a man who recorded the first cut of our history

On several occasions I tried to inevitability about his move from encourage Patrick Hannan to join the newspapers to television. Soon after he IWA. His replies were increasingly went to BBC Wales in 1970 he became firm – after all, he had heard it all its industrial and political correspondent, before. “Davies,” he would say, “I the very title reflecting the centrality of ain’t joining. I don’t do that sort of industrial strife in the politics of the time. thing.” I should have known better, Strikes were a daily occurrence, the big he sought to make sense of the events because deep down I knew his ones often ending in beer and sandwiches and people that he had reported, and resistance was not just a matter of at No 10. with a colour and wit that broadcast temperament but of policy. His was a daily voice on radio and a news can rarely accommodate. nightly presence on our screens. More He was a serious man, but full of Following the death of his father at the than anyone else he told the people of humour and fun. He was keen to age of nine, he spent less than happy Wales their own story. He did so from the educate, but just as keen to entertain. schooldays at Cowbridge Grammar palace of Westminster, from picket lines He found earnestness tedious and was School which he dubbed ‘a Woolworth’s and miners’ conferences, most often endlessly amused by our foibles and our version of Harrow’. This, and arguments standing before steelworks or pits – usually myth making. The paucity of outlets in at over his Irish Nantgarw colliery, not because Nantgarw Wales for serious print journalism forced Catholic background, helped him was especially troublesome, but because, him to channel his gifts as a writer into discover “my life’s vocation as a lance as he pointed out, its pit head gear was five books that attempted to make sense corporal in the awkward squad”. He later the nearest scenic prop to the BBC. of the events he had described. It was a confessed that he always found “being in Inside two decades that world was period of insightful and witty reflection. a majority uncomfortable and ill-fitting”. gone, the end of Wales as we had known In The Welsh Illusion he commented like But beyond mere temperament, he it. Industry and politics became separated many others on the role of women in the prized his own independence as in the world of reporting and in the final miners’ strike, but he went further absolutely essential to his trade. public mind. In politics, too, there was than others in commenting, too, on the He was a professional spectator in a cataclysmic change. Patrick had seen the fact that this produced some discomfort Wales that, he thought, had too many early days of the Welsh Office, had been in the male world of coal. It was, he said, cheerleaders and campaigners, and not at Aberfan, had searched and failed to “as if the Beverley sisters had turned up enough detached scrutineers. I was about find the battalions of the Free Wales in the college of cardinals”. to call him a devil’s advocate, but Patrick Army, and was there for the referenda in Nothing fazed him, and for good would not have taken a brief from 1979 and in 1997. In his own words, he reason. The breadth of his reading was anyone, and certainly not from someone had started by reporting on politics in immense – history, politics, biography as partisan as the devil. He relished the Wales, and finished by reporting Welsh and diaries, novels and poetry, coupled warmth of Welsh life, but was suspicious politics. Along the way he gave all sides with an equally wide knowledge of film, of its cosiness. He was not going to be an equally hard time. and opera from Verdi through Gilbert beholden to anyone, or to have his In the middle of the process - and and Sullivan to Flanders and Swann. independence compromised by even the before the last cataclysmic miners’ strike - This and an Irish obsession with most token affiliation. That is something he left the staff of the BBC for the less language (he recently signed up for an I should have respected. certain life of a freelance. The change Irish passport) as well as his prodigious I first worked with him at the also meant that he spread his wings in memory armed him for any and every Western Mail in September 1966 only a directions that brought his knowledge occasion, not least Round Britain Quiz few weeks before the Aberfan disaster. and love of history and of his own patch that he and his colleague Peter Stead Over more than forty years he charted more obviously into play. His reporting won five times in ten years. Wales’s progress through events that, had always been infused, even if He was not only a diligent and industrially and politically, were to change sometimes invisibly, by his knowledge meticulous great reporter, but also a wise, it utterly. His work described that and love of history. After all, he had been entertaining and wholly necessary bridge progress, but the shape of his career also taught at Aberystwyth by both Gwyn Alf between past and present. To have him told us much about the changing media. Williams and Richard Cobb. In as the truest of friends was a privilege As with so many of us, there was an numerous documentaries and five books beyond measure.

winter 2009 | 11 contents opinion news obituary outlook

leads Labour after 1 December, when also argue that he offers a new, more the result of the contest between Carwyn open and more inclusive approach to Jones, and Huw Lewis will politics. Huw Lewis will want to see that be announced, will have to take some the traditional Labour moral crusade tough and unpopular decisions. looks for new solutions to tackle poverty Given the uncharted waters that and homelessness in the 21 st Century. He Jeff Jones Labour in Wales now faces what do might have opposed the coalition with the three contenders for Rhodri’s crown Plaid, but on many issues it could be tell us about the future path of the argued that he is very close to the radical Welsh Labour’s Assembly Labour Group under their wing of Plaid. leadership election leadership? Like all politicians all three Carwyn Jones is much harder to place have strengths and weaknesses. The fact in any Labour tradition in my opinion. A In the early 1980s in the aftermath of that no one has obtained a decisive lead politician of real ability and with all the Labour’s two election defeats of 1979 amongst those who know them best, necessary communication skills to succeed and 1983 commentators often asked namely the AMs, also suggests that in modern politics, some would argue was Labour at the crossroads. Today there is no clear agreement on the way Carwyn is the New Labour candidate some might even argue that Labour forward for Labour. for the leadership. Much like the New has perhaps reached the end of the Edwina Hart and Huw Lewis Liberals before 1914, Carwyn would offer road and we are at the beginning of represent the two traditional wings of the economic competence and pragmatism another major political upheaval in Labour Party. Edwina Hart with her tempered by a social conscience. British politics. trade union background and character Carwyn’s pitch is that he is the candidate could be seen as Wales’s Ernie Bevin. who is best able to appeal to all of Wales. Whoever becomes the new Leader of Rooted in the Labour movement with a His supporters argue that as a former the Labour Group in the Assembly no nonsense approach to politics which successful Rural Affairs minister he has faces a very different world from the takes no prisoners, Edwina would not be the ability to reconnect the party with one faced by Rhodri Morgan when he afraid to take the difficult decisions areas in west and north Wales where succeeded . Although for necessary over the next few years. Her Labour has lost support over the past few some the result of the first Assembly reform of the health service and her years. His supporters would argue his election in 1999 was a disappointment, support for devolution for the English ability to speak Welsh is also further proof Labour was still riding high. In the regions also suggests that she could be that he is the candidate best placed to 1997 Westminster election, Labour had open to new ideas on the delivery of reconnect the party with the parts of obtained over 58 per cent of the public services. The key question of Welsh society that have deserted Labour popular vote in Wales. course is could she carry others with her. in the past 30 years. With the economy booming and the How would Plaid ministers react to the On the other hand others would argue new Labour Chancellor proclaiming the end of Rhodri Morgan’s laissez-faire that like many New Labour politicians, end of ‘boom and bust’, Labour in Wales approach to Cabinet government? Her with their pragmatic ‘what works’ could look forward to a world where reluctance in the past to engage with the approach to politics, it is often difficult to money would flow from Westminster. media also raises serious questions about tell what Carwyn actually believes in. Although Rhodri Morgan might still be her ability to persuade a sceptical public Whereas both Edwina Hart and Huw popular, the same cannot be said of the to support the difficult decisions required Lewis have started to talk about policies Labour Party in . Terrible with regard to public services. and ideas, Carwyn seems to travel ‘policy results in the 2007 Assembly elections On the other hand, Huw Lewis light’. A recent comment in the Wrexham were followed by further losses in the represents the ILP intellectual wing of the Leader that his aim is to “raise people’s 2008 local government elections. The Labour Party. At his campaign launch, he confidence” doesn’t exactly inspire final humiliation was coming second talked of the beginning of a battle of confidence. Perhaps it could be argued behind the Tories in this year’s European ideas. No socialist in the Labour Party that given the restraints on the Assembly election. To make matters worse, in the could disagree with any of the pledges set budget in the next few years, rather than words of Finance Minister Andrew out on his website. If the Labour Party is asking the three candidates for new ideas, Davies, “the years of plenty are over”. “a moral crusade”, to quote Harold the real question that should be asked is Whatever the political persuasion of the Wilson, then Huw Lewis is putting where they would make the necessary next Westminster government it is clear himself forward as the man to lead that cuts. In terms of the coalition with Plaid, we face major spending cuts. So whoever crusade in Wales. His supporters would I can’t see any of the candidates trying to

12 | www.iwa.org.uk renegotiate the One Wales agreement. of publicly available biographies of all Given all the other problems it faces it those elected in the three elections - isn’t in Labour’s short term interest to do 1999, 2003 and 2007 – there is one anything that might break up the unequivocal conclusion. The dominance arrangement with Plaid. Having said that, of the public sector in Wales has been any new Labour Leader could face Geraint Talfan given full expression throughout the problems from a budget for 2011-12 Davies Assembly’s first decade. dominated by cuts, or the Jones-Parry In the three elections 89 people have Convention report, due to be published Paddling in a been elected. Of those, 33 (37 per cent) on November 18. claim some experience of the private As both parties jockey for position in shallow gene pool sector, including the private professions. the run up to 2011 the new Labour leader Of these 33, nine are no longer serving as might find that some in Plaid could be The row over MPs’ expenses, and its a result of retirement, death or defeat, arguing that being associated with a cuts much paler shadow at the National leaving the current Assembly with 25 (42 agenda set by Labour is not in their long Assembly, has given per cent) claiming some time in the term interest. Given the commitment to a the space and lever to promise to cut private sector: Labour with 9 (26 per cent referendum before 2011 the best result for the size of the House of Commons by of their group), Plaid with 4 (27 per cent), a new Labour Leader from Jones–Parry 10 per cent, and to cut ministerial Conservatives with 9 (64 per cent) and might be a non committal one stressing pay by 5 per cent. It is hard to know Liberal Democrats with 2 (33 per cent). that a ‘yes’ vote is not a certainty. whether this is mere populism, But this is to stretch the definition of Despite Rhodri Morgan’s personal prudent economy or constitutional private sector experience to the limit. For popularity and the so called ‘Clear Red change. However, we can be certain example, it would include two of the Water’ approach, Labour in Wales has that if the reduction is ever three candidates for the Labour leadership continued to lose popular support. For implemented it will produce a sharp – Carwyn Jones, as a barrister, and many in the party the key issue in the focus on performance and selection Edwina Hart out of banking, although her leadership election is whether whoever procedures in our political parties. key involvement was as a trade union emerges will be able to reverse Labour’s official. It would also include Plaid’s decline. For two of the candidates their Putting aside the constitutional Gareth Jones, as an educational very political survival could even be linked implications – and some would argue that consultant, although his work would with a revival of Labour support. A it poses considerable risks for the union – undoubtedly have had a primarily public recent opinion poll includes both Gower the prospect of such a change makes it sector focus, plus the Conservative Nick and Bridgend in the list of marginal seats timely to consider the background of our Ramsay’s two years as a driving in Wales that the Tories could win next elected representatives. instructor. I think it is fair to count three year. On a low turnout in 2011, both In the last issue of Agenda I argued farming AMs - Mick Bates, Kirsty Edwina Hart and Carwyn Jones could that “for those in used to Williams and Brynle Williams – in the easily lose their seats in the Assembly. hearing gripes about the calibre of private sector, although farming puts you In my opinion, the long term future Assembly Members, it must have been a pretty close to the public till. of the Welsh Labour Party in Wales will vicarious pleasure to hear similar Many careers cross the public/private not depend primarily on who is elected complaints about MPs”. But I also divide. Every one of the 41 Labour AMs on 1 December. It will depend on voters’ argued that we need to take care with this since 1999 has had some prior work perceptions of the UK Labour Party. language: “To argue about the calibre of experience within the public sector There is no separate Labour Party in elected members seems to be an act of (excluding political service), either in local Wales. In the digital age most voters do personal denigration, in the vast majority government, the health service, education, not get their information from Welsh- of cases undeserved. The real issue is or the BBC. The same is also true of all based media. If the views of voters are about the increasing narrowness of the but four of the 23 Plaid Cymru AMs. influenced by their opinion of the gene pool from which elected members The exceptions are Dafydd Wigley, the leadership of a party then in the case of are drawn, and that is certain to be a accountant , and two the Labour Party, it is much bigger issue for a body of 60 new regional list members, not Rhodri Morgan who is the key members in Cardiff Bay than for the 646 and Bethan Jenkins, whose only post- opinion former. in the House of Commons”. university work experience has been This set me wondering whether the within the party. Amongst the Liberal Jeff Jones is former Labour leader of general impression of a narrow gene pool Democrats only Kirsty Williams has had Bridgend County Council, now running within the National Assembly was well no work experience in the public sector. the Metier political consultancy. founded or not. On the basis of a review The Conservatives are the one party to

winter 2009 | 13 contents opinion news obituary outlook buck this trend, with only six of their 18 finance, and the quasi-private sector of take too managerialist a view of political past and present members having had small business consultancy. It can also representation – management and politics some public sector experience. boast no less than seven drawn from are different disciplines. A key task of It can be argued, of course, that journalism, marketing, public relations politics is representation, and that requires experience of the public sector is just as and the media, not to mention one a different knowledge and empathy. But important, if not more important to the minister of religion. But what marks out any legislature, especially one that also Assembly, given that the role of the non-political work experience of too constitutes an executive, also requires government is primarily to do with the many in this cohort is not the lack of some aptitude for executive action and for delivery of public services. But even then range, but the brevity not to say the scrutinising of government, for it is pertinent to ask what are the reserves shallowness of the experience. framing and scrutinising legislation, as of senior experience in larger Is the picture any different among the well as some sense of what constitutes organisations – whether public, private or 40 Welsh MPs in what is still the senior sound strategy and the impact of policy voluntary – on which the Assembly and legislature? Apparently not. If 42 per cent and legislation on the behaviour of the Welsh Government can draw. of current Assembly members claim some organisations as well as individuals. Inevitably, any assessment involves some private sector experience, only 37 per subjective judgements both about cent of our MPs do so. In the largest Geraint Talfan Davies is Chair organisations and about the definition of party group – Labour – 35 per cent of of the IWA senior experience. Assembly members are in that category Any tally of those with experience of against only 27 per cent of MPs. In each sizeable organisations would not of the other three parties, two of their encompass more than a dozen members three MPs have worked in the private across the three terms, half of whom are sector. In the 29 strong Westminster no longer serving. This leaves Leighton Labour group, 24 have public or Andrews (BBC), Andrew Davies (Ford), voluntary sector experience. Edwina Hart (BIFU), Rhodri Morgan Overall, one might also argue that the (South Glamorgan County Council), work experience of MPs is even more Madoc Batcup Nick Bourne (Swansea Institute of Higher limited: one farmer, Roger Williams, Taking control of Education) and (Lloyds- against the Assembly’s three, Mick Bates, our own resources TSB). Those no longer serving would Brynle Williams and Kirsty Williams; include two former leaders of large local three from journalism and PR (Ann authorities, (Cardiff) and Clwyd, Alun Michael and ), The Holtham Commission Pauline Jarman (Rhondda, Cynon Taf), a against the Assembly’s five (Leighton is currently conducting deputy chief , Alison Halford, a Andrews, , , the second leg of its consultation vice-principal of an FE college, Alun , Kirsty Williams). Welsh to identify alternative funding Pugh, and Dafydd Wigley a financial MPs can count proportionately more mechanisms for the Welsh controller with, successively, Ford, Mars lawyers - two solicitors, David Jones and Government, including the possible and Hoover. Ian Lucas, and one barrister, Elfyn tax varying powers and greater Such work experience as exists within Llwyd, to put against the Assembly’s two, powers to borrow. the Assembly is primarily derived from barrister Carwyn Jones and solicitor, small scale enterprise, with almost none Ieuan Wyn Jones, although one might What is needed is a reasonably large drawn from the senior ranks of any kind also want to count Nick Bourne, as a source of income which would not of organisation. Arguably, Alison Halford former law professor. severely disadvantage Wales, nor provide and Nick Bourne (Deputy Principal, Neither is it easy to find senior undue distortion. Wales may not have oil, Swansea Institute of Higher Education) managerial experience amongst the MPs. but it does have considerable natural are the two who have held the most Labour’s David Hanson was National resources, and it can be argued that senior managerial positions in Director of a charity, the Society for exploitation of the natural resources in organisations of any size. the Prevention of Solvent Abuse, and Wales should benefit the people of Wales. The work experience of AMs does, Lembit Opik headed the Corporate There are two ways in which income can however, cover the gamut of the Training and Organisation Development be generated from such resources: Assembly Government’s functions – Department for Procter and Gamble. health, social services, youth work, After that it is pretty thin, and certainly 1. By a tax or levy on any or all aspects teaching and lecturing, equal thinner than the Assembly. of the permitting, building, and opportunities, farming, banking and However, it would be a mistake to exploitation of such natural resources.

14 | www.iwa.org.uk 2. By the public ownership of such assets. This principle in respect of generation, the three per cent annual ownership of natural resources also carbon reduction target for the Welsh Wales is a substantial exporter of water holds true for water, an issue that Government’s activities, green jobs, and of energy, producing significantly particularly rankles in Wales. The and a plethora of other targets for more electricity than it needs. It has one Government of Wales Act 2006 gives transport, energy efficiency, fuel of the largest ports in the United the Secretary of State for Wales poverty, and renewable energy. Kingdom for the import of oil and extensive powers to override the wishes LNG, and a large pipeline under its soil of both the Welsh Government and the The 2008 Climate Change Act to take LNG to consumers in England. Welsh legislature, both pre and post any introduces the Carbon Reduction It is starting once again to increase the successful referendum on additional Commitment which will set out ‘caps’ amount of coal it produces. There is power if he or she believes that there for emissions, and establish systems for discussion about the exploitation of may be an adverse impact on resources, the trading of permits between methane contained within the coal quality or supply of Welsh water to companies, universities and large public seams underground. England. These powers are contained in bodies in Wales. For carbon reduction, Wales also has a significant number Clauses 101, 114 and 152 of the there are strong legal and financial of on- and off-shore wind farms, with Government of Wales Act 2006 and motivations for governments, their plans to expand these significantly. In should be removed. sponsored and funded bodies, and the case of wind farms there has been The Welsh Government should also companies to respond. Importantly, partial recognition of the appropriateness have the right to charge a transit tax on there will be timescales and targets to of compensating communities affected resources which are transported through respond to. There is a strong through the establishment of its territory, for example LNG. framework for accountability. ‘community funds’. However, these The current inability of the Welsh The other cause for hope is the appear to be negotiated on an ‘ad hoc’ Government to benefit from the recently established Climate Change basis and do not deal with the exploitation of Welsh natural resources Commission for Wales. Convened by the fundamental issue of natural resources makes it more dependent than it need Welsh Government this is assisting with providing governmental income. be on largesse from London. It would “the development of new policies and the The issue of ownership of assets is be preferable for the Welsh Government creation of a consensus on climate one of exceptional importance in Wales. itself to exploit the very extensive energy change”. Most of its work to date has There is a clear question mark as to and water resources on its land and been around the Climate Change Strategy , whom ownership of the Severn crossing around its coasts. This would provide a which it has been consulting on during will revert to when the concession expires. long term funding framework which much of this year. Some key questions for On a larger scale the UK government is would go some way to enabling the the future are how the Commission consulting on harnessing the tidal power Welsh Government to raise the income develops to provide an overview and of the Severn estuary, about half of which required for its own expenditure. scrutiny role, how representative it will lies in Welsh waters. Yet in the financial be, and how independent and critical it consultation document by Madoc Batcup is a barrister working can be of government . PricewaterhouseCoopers there is no with financial services in London. A cynic might say that in order to mention of Wales. The design life for the address a policy problem, Governments proposed hydro-electric installations in the will always create a new organisation to estuary is 120 years, and it is implicitly deal with it and a range of documents assumed that the UK government has to describe the problem and say how the right to sell off the benefit of hydro- the Government will tackle it. There is electricity generation in Welsh waters no doubt that this activity has over this period as it sees fit. developed a high level and inclusive The value of the electricity generated Alan Netherwood discourse on achieving a carbon will depend on a number of issues, Adapting to reduction for the Government. including which installations are built However, translating these words into a and the future price of electricity. climate change ‘movement’ to achieve carbon reduction However, given the advantages of a in Welsh society, to achieve ‘One Planet secure, sustainable, predictable source of On the face of it we have Living’, will be a good deal less easy. energy with an extremely low cost of a very progressive government Carbon reduction and energy production, it is highly likely that the in Wales, committed via the security provide us with some complex income would amount to many Sustainable Development Scheme to and politically fraught ‘wicked issues’: hundreds of millions of pounds per year. ‘One Planet’ living within a Where are we going to get our

winter 2009 | 15 contents opinion news obituary outlook energy from in future? What is the functions and boundaries. The Climate China and India are emitting so much. future role of nuclear energy in a Change Commission for Wales has a ‘nuclear free’ country? Should we use clear role here to air these questions Such responses indicate the challenges our coal reserves? How can we capture for debate, as has the Sustainable we have in communicating the role of carbon from power stations and store Development Commission and for civil global equity, stewardship, accountability it? How do we initiate road and society, Cynnal Cymru: Sustain Wales. and good governance. However, other congestion charging? What is the In general there is a weaker responses are more encouraging: carbon ‘bang for buck’ for household framework for accountability for climate • I can’t look my grandson in the eye if micro-generation? Is the Severn Barrage change adaptation in comparison to we don’t do something radical on this. worth the effort? How might peak oil carbon reduction. Where in our systems • We need to plan over the long term affect carbon reduction? How can we do we take, hold or give account on and show where we will be in 10, 20, balance food production with a need for climate resilience? Until these are 30 years time. biomass crops? How can we best store established in the governance system I • I need to be providing better carbon in soils and vegetation? fear adaptation will always play second leadership on this within and outside The Climate Change Strategy skirts fiddle to carbon reduction. the authority. many of these issues. It contains lists of Part of the problem is a skills gap very worthwhile initiatives which can in effective long term planning in a Two clear messages come out of this contribute to carbon reduction, but political and financial system which work. One is the power of eliciting an lacks a clear idea of what difference encourages short-termism in emotional response by making the these will make in relation to the scale government. There is also a skills gap in policy ‘problem’ relevant to the listener. of the problem. effective scrutiny of decision making on The other is the benefit of creating A great many challenges lie ahead climate change and a need to develop ‘space’ for leaders and others to explore for us in Wales, initially because of past leadership on climate adaptation. I climate adaptation and carbon reduction emissions up to 2040, and then post wonder how the Welsh Government will in their busy lives. 2040 depending on how efficiently we follow Environment Minister Jane reduce our carbon addiction over the Davidson’s forthright lead on climate Dr Alan Netherwood is an Honorary next 20 years. How do we compensate change when she steps down from Research Fellow with the School of land owners for ‘managed retreat’ due office. I also wonder about the critical City and Regional Planning at Cardiff to rising sea levels, and cope with relationship between Welsh Government University. uninsurable properties and impacts on and local authorities on adaptation. land values? How can we plan our Local authorities will be lead agriculture to benefit from climate organisations in managing the change? How can we ensure a consequence of climate change and sustainable and secure supply of food in getting the system fit for purpose on Wales? How can we provide enough both carbon reduction and adaptation. water for everyone throughout the year, Their relationship with the Welsh capture water in our landscape for Government needs to be strong, open farming, and continue to supply and honest with effective leadership at increasingly water scarce parts of the both levels. UK? The Climate Change Strategy is My role with the Welsh Local Nicola Porter vague and unfocused on these Government Association involves running Welsh journalism ‘adaptation’ questions. It has few targets workshops with Executive Members and needs to fight back or objectives other than further research Senior Officers imagining the on the evidence base, and consequences on a local authority in 2040 mainstreaming adaptation into decision of a world where climate change has really Isn’t it time we stopped blaming making in the Welsh Government. begun to impact. Some of the comments London-centric media moguls for the We need a national debate about the from these workshops are illuminating: decline of our Press? The demise of fundamental adaptation issues of • It’s got nothing to do with me, local papers, cemented by online economics, water supply, food supply, I’ll be long gone. competition and recession-fuelled health and flood protection in a • We only deal with short term issues falls in advertising revenue, are changing world. These realities will and delivery of frontline services, it’s lamented but never tackled. There present us with stark choices about central government’s responsibility. have been reports, even desperate funding, priorities and organisational • Why should we do anything when recommendations for state sponsored

16 | www.iwa.org.uk journalism, but no made-in-Wales Take education: the system has surely fertile soil for the charging of good solutions by journalists to the undergone a facelift since departing quality online news because there is no challenges of the digital age. from Westminster in all but pay and competition from the BBC in London. conditions by the 1998 Government But there’s another potential spoiler I have been at the receiving end of of Wales Act. The nation has long to journalistic advancement in Wales: London cost cutting exercises twice this abolished SATs (tests for 7,11 and the stranglehold of poor quality PR decade. In 2000, I was employed as a 14-year-olds). Only now England is that increasingly leads the news agenda. reporter for the Welsh . catching up, with its teachers desperate In depleted Welsh newsrooms it is When the edition was pulled in 2003 it for an end to the test mentality. They becoming the norm for overworked was seen as an act of treachery by Trinity are said to be ‘green with envy’ with journalists to churn out partisan news Mirror, but it was soon chip paper. what is afforded their Welsh colleagues lines almost verbatim, unchallenged The second time I fell to the London in policy, if not in funding. The play- and unchecked. News is increasingly axe was more recently as editor of the led Foundation Phase for under-7s; the regurgitated in cyber space, plucked specialist education publication TES scrapping of unfair league tables; and from blogs and dumped on pages, Cymru, the Welsh edition of the Times the birth of the Welsh Baccalaureate electronic or otherwise. Educational Supplement. When I took qualification are all huge coups for Welsh Editors need to take control over the editorship in 2006, TES had Wales. But who would know? and clamp down on lazy and recently been re-launched. It was a There is still confusion among unsubstantiated journalism that has no glossier, some would say dumbed down, Wales’s 27,000 or so full time teachers, place in a nation where the values of version of a publication widely regarded let alone parents, over the startling and an independent press are under siege. as the education ‘Bible’ for British growing educational differences between But they also need to give their staff teachers for almost a century. England and Wales. Sadly, specialist more time to do a proper job. The TES, and its associated news in education or health rarely There is a further stumbling block publications, had been a cash cow for makes it outside the Welsh border and to Welsh journalistic integrity: the media tycoon Rupert Murdoch at News the majority of news read or watched insecurities of the Assembly Government International, but he sold the stable for in Welsh homes, emanating as it does and the reluctance of many in £234 million to private equity group from London-based media, has no officialdom to engage with criticisism in Exponent in 2005. Maybe Murdoch bearing on Wales whatsoever. a constructive way. For Wales to mature had a crystal ball. It is with this backdrop that James as a democracy there must be realisation Over the next three years my Murdoch's words at the Edinburgh that for every positive there is a negative. passionate pleas to London bosses for Television Festival in August have such Spin surely went out of fashion with more resources to reflect educational resonance. Murdoch, son of Rupert and . Voters now demand a devolution did result in two more pages chief executive and chairman of News balanced picture from public servants. and a trainee reporter. However, Corporation, Asia and Europe, claimed There has never been a greater need recession finally sealed the edition’s fate. the BBC’s “dumping” of free, online for Wales to be heard on the world The Wales office in Cardiff has now state-sponsored journalism was stage. Yet good quality journalism is closed and I, along with a trainee strangling the market and destroying under threat as never before. Wales’s reporter, was made redundant. One online enterprise. But while the media has to embrace the digital age TES Cymru reporter remains on patch, Murdochs might be worried about their and move on. There is a need to start working from home and under London plans to charge for news next year, charging for good quality online news – news desk control. Gerard Kelly, Editor there should be no such fear in Wales. especially in specialist areas - to service of TES, told Press Gazette this summer, In 2008, a report by the BBC’s the Welsh nation. It is also the Welsh “We hope we can give the Welsh market independent watchdog, the BBC Trust, Press’s responsibility to halt the a good service but it will be the case of found that 136 education related stories profession’s contamination by the art of the possible”. There is, as he coming from the BBC’s London-based opportunist PR that has held back the puts it, a “difficult” Welsh market. outlets were not relevant to Wales. nation’s developing democracy. It’s time But as Wales’s devolved government Amazingly, 40 per cent thought Ed Balls, for a journalistic fight-back in Wales. is placed under the microscope as a Secretary of State for Children, Schools General Election looms, we urgently need and Families, was responsible for the well balanced news coverage in good education portfolio in Wales – not Jane Nicola Porter launched the quality national papers and their websites. Hutt. If mainstream news reporting of Education Reporter website, In the long term, however, it is Wales not education in Wales is left to the BBC www.educationreporter.co.uk, in London that needs to deliver that news. then it is hardly reported at all. Wales is October 2009.

winter 2009 | 17 politics economy international science environment education health social policy culture Fresh air in Cath ays Park John Osmond hears how the new Permanent Secretary Dame Gill Morgan, is dealing with Whitehall arrogance

Success for the devolution project in October 1998 had more than political office, clinging on to civil service norms Wales was always going to be a slow fall-out. It was a major reason why and seeing the Assembly as an burn affair, mainly because our Rachel Lomax, the charismatic Welsh evolutionary extension to the process political and administrative capacity Office Permanent Secretary responsible rather than the revolution it really was. was so under-developed ten years for spearheading the implementation of The fall of Alun Michael in January ago. You might say the Welsh devolution abandoned it soon afterwards, 2000 and his replacement by Rhodri Assembly experiment has been finding a safer haven in Whitehall. Morgan changed all that. Coalitions devolution for slow learners. It was left to her deputy Jon became part of the scenery, the civil Shortridge to pick up the pieces. With a service changed gear and has been A decade in and there are some background in local government he was a playing catch-up ever since. The size of encouraging signs. The National safe pair of hands but temperamentally the challenge was set out by the Assembly itself, with its separation from averse to adopting the outgoing Assembly Government’s Review of local the executive, legally endorsed by the leadership style that Rachel Lomax had service delivery Beyond Boundaries that 2006 Wales Act, is rapidly acquiring pioneered. Instead he preferred the back was led by Sir Jeremy Beecham and parliamentary status. There are signs, too, published in July 2006. Comparing that the politicians are learning on the Assembly Government Strategic outcomes with equivalent areas in job. Kirsty Williams’ leadership has given Delivery and Performance Board England the Review found that in general a new edge to the Liberal Democrats, the Wales performed worse across both the Conservative Group is providing a • Dame Gillian Morgan, health service and local government. credible opposition, Plaid Cymru is Permanent Secretary As the Review concluded: “There is gaining experience in government, and • Emyr Roberts, Public Services too much of a culture of compliance, Labour’s leadership contest is provoking and Local Government Delivery waiting to be told what to do by the a fresh vitality in a party that desperately • Gareth Hall, Economy and Transport Assembly Government”; “The culture needs to reinvent itself in Welsh terms. • Paul Williams, Chief Executive, has been defensive about publicising Underpinning the whole edifice is the NHS Wales performance”; and “Risk aversion can civil service and arguably it has had the • David Hawker, Children, Education, stifle improvement.” toughest time adjusting to the new Lifelong Learning and Skills Given this analysis it was significant dispensation. The old Welsh Office was • Bernard Galton, that in May last year Sir Jon Shortridge little more than a post box for Whitehall, People, Places and Corporate Services was succeeded by a member of the and had little experience of developing a • Christine Daws, Finance Beecham Review team, Dame Gillian policy agenda. In the late 1990s it was • Clive Bates, Sustainable Futures Morgan. Speaking in her office simultaneously confronted with • Kathryn Bishop, overlooking Cathays Park she said her establishing the National Assembly and experience with the Review had Non-Executive Director putting in hand the European Objective persuaded her that Wales could be run • Elan Closs Stephens, One programme for west Wales and the differently. “To me our unique selling Non-Executive Director Valleys. The result was a kind of point in Wales is that you can be more • James Turner, Non-Executive Director collective nervous breakdown. joined-up. You can put policy makers in Personalities played their part. Ron Source: a room and have a conversation, for Davies’s walk on Clapham Common in wales.gov.uk/about/managementboard/membership instance about the inter-relationship

18 | www.iwa.org.uk Gillian Morgan at work in her office. Photo: John Briggs between climate change and jobs, or we have achieved despite two attempts.” to eight Directors General, excluding the between social policy and housing.” Rhodri Morgan declared the scheme three non-executive Directors. “We The strongest indication of a change a remarkable tribute to the Welsh needed people whose job was joining up to a more can-do approach was the bureaucracy. As he told the National policy and thinking across portfolios,” she Assembly Government’s swift response Asssembly in September, “I had never explained. “I was determined to attack to the recession. Gill Morgan cited the come across a scheme that had gone the silo culture. Now everyone is urged £48m ProAct scheme, in which from being an idea thrown across the to think of joining up policy.” companies on short time working can table between the Welsh Manufacturing The new Directors General link into receive up to £4,000 per employee as a Forum and Ministers, to being the Cabinet’s Committee structure, wage and training subsidy to keep them implemented, with application forms out comprising: in employment. As at October 2009, there, in the space of about two months, £15m had been allocated to 115 which included the and New • Children and Young People companies across Wales supporting 6,000 Year break. For a peacetime bureaucracy • Climate Change people, with help for another 6,000 or at work, that showed an extraordinary • Public Service Delivery so in the pipeline. level of agility and commitment on the • Regeneration, Skills and Tackling The scheme has won plaudits from part of our officials.” Economic Inactivity elsewhere in the UK and across the In part Gill Morgan attributes the • Strategic Capital Investment European Union, with the Financial success to her streamlining of the Times, for instance, running headlines bureaucracy she found at the top of the The creation of Directors General, at such as ‘Wales creates envy in the Welsh Government 18 months ago. “We Deputy Permanent Secretary level, Midlands’. As Gill Morgan said, “It’s had a Management Board with more was also a deliberate way of engaging notable that Scotland has followed our than 20 people around a table,” she said. more effectively with civil service example with ScotAct, and England is “That’s a conference, not a management departments in Whitehall. Compared still trying to find a way to emulate what group.” Her response was to slash them with Whitehall departments the Welsh

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Government, made up of 6,000 civil cut across the board. How was she Confederation, the body that represents servants, is relatively small. As Gill responding to calls that the cutbacks hospitals, mental health, ambulance and Morgan said, “Our people tend to be meant we should take another look at the primary care trusts in Wales, England taking on responsibilities at two grades efficiencies of 22 local authorities? and Northern Ireland. below civil servants in London with the Born in Ynyshir in the Rhondda she same functions and tend to “If you reorganise you lose three years. was brought up in Hampshire and be 10 to 15 years younger. You’ll spend your life searching out Lincolnshire and then qualified as a doctor where the deck chairs were three years at University College, London. She “The civil service is notoriously ago. Personally I’ve been scarred by the became a hospital physician and GP hierarchical and it is very difficult to number of reorganisations I lived before climbing the NHS management achieve an effective dialogue between through whilst working in the NHS. ladder that led to the NHS Confederation. civil servants of different grades. It’s In England I believe they’ve had 34 She sees being Permanent Secretary in easy for people in England to stereotype reorganisations since 1948. Wales as the next logical step. us as the weaker partner. I want us to The defining moment of her career stop England seeing us as the younger “The real 21 st Century public services came while working as a registrar sister or brother.” question is how to co-ordinate the total physician at Clatterbridge hospital on the public sector spend by the whole raft of Wirral. She remembers a particular “What I have been struck by in my first agencies, organisations and departments patient, a retired headmistress and pillar year as Permanent Secretary is a lack of within discrete geographical areas. If you of a village community, who began to genuine commitment to devolution and can get a handle on that and start some show the early signs of dementia. “The a culture of arrogance in some cross-cutting collaboration you can begin whole village wrapped itself around her to Whitehall departments. In many to rationalise paying for administrative provide support.” She might have lived respects Wales is off the radar in overheads and achieve real savings.” on happily for years, but her prospects London. I believe the restructuring of plummeted after she was admitted to our management structure, with the But what about the recent reorganisation hospital with an acute lung condition. creation of more Directors General will of the 22 Local Health Boards, which Doctors dealt skillfully with the go some way to tackle that.” have been culled into seven Boards – a emergency, but she was given sleeping

She adds that as a result of her “What I have been struck by in my first year as Permanent reorganisation there are now six fewer Secretary is a lack of genuine commitment to devolution senior posts with a saving of £500,000 a and a culture of arrogance in some Whitehall departments.” year. More generally, she says there should be a greater sharing of back-office functions across the public service, pattern some are saying will soon be pills to stop her disturbing other patients especially finance, HR and procurement. followed by local government? “The NHS in the ward where she was recuperating. Procurement is a good example is different to local government,” she This exacerbated the dementia. “If we where a cross-cutting approach should replied. “There is always a drive to get had got that lady out of hospital in two or deliver dividends. “Across the whole of more clinicians into management. We three days, she would have gone back to Wales we only have 150 people trained never had a sufficient cohort of managers being a pillar of her village. Instead, it in procurement. Yet this is an area to administer a structure of 22 local health took me a year to get her rehabilitated on where, by working across departments authorities. You need a critical mass of a geriatric care ward. It was an incredible and the whole of the Welsh public management to manage what is an success of medical intensive treatment and service, including health and local increasingly complex and technocratic an incredible disaster in terms of care.” government, we have an opportunity to system.” This is what Gill Morgan means by save a good deal of money.” Gill Morgan has brought a breath of the challenge of joining up government. Saving money will be a major fresh air into the corridors of Cathays She says she has five years to see it preoccupation for the Assembly Park. Part of the reason is that, though working in Wales, five years in which the Government in the coming years as the she has a detailed knowledge of its inner devolution experience will be put to the spending squeeze kicks in. Gill Morgan workings, she is not a career civil servant. test as never before. has made it clear that she is looking for Before taking up the reins in Cardiff she strategic savings rather than a percentage spent six years as head of the NHS John Osmond is Director of the IWA.

20 | www.iwa.org.uk Dafydd Wigley outlines the options for when to hold a referendum on extending the Assembly’s powers Goo d t iming

There are now three moments when a referendum on giving the National Assembly primary legislative powers, under Part 4 of the 2006 Wales Act, could be held:

1. After the forthcoming Westminster than are Conservative AMs in the and recognised. The draft Order also General Election, expected in May Assembly, with the potential that has to be placed before the Assembly. 2010, but before the next National Conservative AMs who support full law • The Secretary for Wales has the right, Assembly Election. making powers could be put in a very after consultation, also to refuse the 2. On the same day as the Assembly difficult position. application for a Referendum. If so he Election in May 2011. All these factors must be borne in has to give a reply in writing to the 3. After the Assembly Election of 2011. mind as we try to establish the ideal , with the time for holding the Referendum. reasons for the refusal, and this also Of course, in considering the date the Before considering the options, it has to be completed within 120 days most important aspect is to choose a is worth summarising the statutory of the original application. time when a ‘Yes’ vote is most likely to provisions for holding a Referendum, as • If the Secretary for Wales places an be carried. We must bear in mind the they have a direct impact on the possible Order before the House of Commons various factors that can have a bearing dates. There are complications with and House of Lords, there will then need on this. Firstly, international experience regard to the timetable that arise from to be a further 40 day period before it shows that voters very often use a both the Government of Wales Act 2006 becomes effective – assuming neither Referendum to punish the government and from the Political Parties, Elections Chamber intends to vote against it. of the day. Secondly the economic crisis and Referendum Act of 2000. The steps • Then the Assembly, again, has to vote has created uncertainty and this is likely in this process are: with a two thirds majority to to worsen. recommend the draft Order. Thirdly, many Labour MPs are • A motion calling for a Referendum against giving law making powers to the has to be passed by the National This means it could take up to 160 days Assembly. We must remember how the Assembly, with at least two thirds of for a decision to be taken. This would 1979 Referendum was lost, partly AMs voting for it. be followed by an open ended period – because and his colleagues • The Secretary for Wales then at least 30 and probably nearer 60 days persuaded voters that devolution was undertakes a consultation process and, – before the Referendum can be held. Plaid Cymru’s policy. We must also if he determines he will take the In practice this means to all intents and remember how the 1997 Referendum matter forward, within 120 days he purposes that a period of at least three was won, with Ron Davies persuading has to place a draft Order authorising months, and more likely 6 months, will Labour supporters that devolution was a referendum before both the House elapse between a decision by the in fact Labour policy. At all costs we of Commons and House of Lords. Assembly to call a Referendum and the must avoid the danger of people The draft Order includes details of the date on which the Referendum takes thinking that it is Plaid Cymru’s policy question, the date on which the place. This is assuming that neither the of independence that is at stake this Referendum will be held and what is House of Commons nor the House of time. The day will come when we can called the ‘Referendum Period’, the Lords nor the Secretary of State block vote on independence: but not yet! time which is allowed for groupings the process from going forward. How Fourthly, Conservative voters are in support and against the do these rules affect the options for a more opposed to law making powers Referendum proposals to be formed date for the Referendum?

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1. After the Westminster Election since they had just had an opportunity argue that a Referendum was part of but before the Assembly Election to do that a few months earlier. ‘Labour’s old business’ and that the in 2011 c) If there is a Conservative electors had declared they wanted a Government at Westminster, the fresh start. There are significant advantages in this Labour Members who oppose law d) As they would then be out of office, option. The last day for holding a making powers for the Assembly will some of the Labour former Ministers, Westminster General Election is in early be open to the accusation that they who would have had to keep quiet June 2010 and this would still enable a would rather accept Conservative whilst in a job, would be free to argue Referendum to be held in the autumn laws from London than those against lawmaking powers – people of 2010. That is, unless the British proposed by a Labour-led like Paul Murphy, Wayne David, Government deliberately delays the Government in Cardiff. and Glenys Kinnock. process; and of course a new d) The Plaid Cymru and Labour groups Conservative Government might well be in the Assembly would be able to co- But having said all this, I suspect that tempted to do exactly that. operate more easily for a ‘Yes’ vote at the arguments in favour of holding a Assuming that the General Election that time than they could during a Referendum in the autumn of 2010 – in fact takes place on the most likely period leading to a General Election were that possible – are substantially date, Thursday, 7 May 2010, and that at Westminster or the Election at the stronger than the counter arguments. the process of calling a Referendum is National Assembly. started immediately after that election, it e) In being free from elections, the 2. The same day as the Assembly would be possible to ensure a media would be more likely to give Elections in May 2011 Referendum sometime during the greater attention to the arguments autumn, between early September and relating to the Referendum. Some people have been mesmerised by late November 2010. f) If it were possible to have a definitive the possibility of holding a Referendum on If there is opposition from the newly vote – one way or the other – before the same day as the Assembly Elections in elected Government at Westminster to December 2010, it would allow the May 2011. The arguments are: the idea of holding a snap Referendum, parties thereafter to prepare their then quite clearly they can prevent this election manifestos for May 2011 a) It would save money. from happening. But I wonder whether knowing exactly what would be the b) If there has been a change of they would want that? They would be powers of the Assembly for the Government at Westminster, the new seen as frustrating the democratic following four year period. Government will be that much more wishes of Wales if they were to drag g) Such a timing would allow unpopular. Voting ‘Yes’ in the their feet. In itself this could strengthen Conservative Members in the Referendum would provide an the case for a ‘Yes’ vote, and it would Assembly who want to support a opportunity to kick the Conservative certainly be harmful for the prospects ‘Yes’ vote to do so. Government in London. of the Conservatives in the Assembly c) If the Welsh Labour Party campaigns Election of May 2011. There are of course arguments against in favour of a ‘Yes’ vote, as part of If it was possible to hold a holding the Referendum in the autumn their electoral platform, it would be Referendum in October or November of 2010 and they include: difficult for Labour Members to 2010, what would be the arguments in campaign against their own favour and against this from the a) If the Labour Party has just lost a Government in the middle of such viewpoint of securing a ‘Yes’ vote? General Election, there will be a an election campaign. The arguments in favour include: bloody internal feuding, and Labour d) It would be possible to combine the will possibly be in the middle of ‘Yes’ vote for legislative powers, with a) Holding the Referendum in advance choosing a successor to Gordon those items of legislation which the of the forthcoming Assembly election Brown as their Leader at Westminster. parties have in their election would ensure that the party political b) In holding back until the autumn of manifesto – and for people to see the contest would not drown debate on 2010, it is likely that Rhodri Morgan connection between a ‘Yes’ vote in the issue of more powers. will have retired – but that his the Referendum and the legislative b) The electors would hardly regard the successor will not have had an consequences in the next Assembly. Referendum as an opportunity to opportunity to make his mark. e) By that time the legislative punish the Government of the day, c) A Conservative Government could programme of the Conservatives in

22 | www.iwa.org.uk the House of Commons will be Taking all these considerations into remarks in an interview with Golwg in clearer, and the electors will be aware account, I believe that holding a early August. Questioned about the fate of the opportunity they have, by Referendum on the same day as the of Assembly Legislative Competence virtue of transferring lawmaking Assembly Election would play into the Orders which may be before powers to the Assembly, to break free hands of those opposed to extending Westminster when a General Election is from such a right wing legislative the Assembly’s powers. called, he was asked whether they programme at Westminster. would automatically fall. The final option would be: His response was, “If we reach the On the other hand there are arguments point where a number of such Orders – quite strong ones – against holding a 3. To hold the Referendum after are well on their way towards being Referendum on the same day as the May 2011 approved, I believe that we could say election to the Assembly: to the Conservatives and the Liberal The arguments for a Referendum after Democrats – ‘Look, don’t block this a) The attitudes of the parties will be May 2011 are all the arguments for since it is the Government of Wales determined by electorate considerations holding the Referendum in October or who have asked for it’.” and not by the Referendum. November 2010 – namely that the So, if it were that the Assembly, b) UKIP, which is against giving the Referendum would not get mixed up say, was to make an opening bid for a Assembly lawmaking powers, will see with either an Election to Westminster Referendum in February of next year, their opportunity and are likely to or those to the National Assembly. A and that that application was half way put more candidates in the Conservative Government (if there is through the system I have outlined by constituencies in addition to those one) will by then be even more March or April when Parliament is they have on the regional lists. unpopular and so Labour voters are about to be disbanded for a General c) Conservative candidates would be more likely to support a ‘Yes’ vote in Election, then the door would be open more likely to support a ‘No’ vote in the Referendum. for Hain to say to the Conservatives, order to avoid losing votes to UKIP. On the other hand, a Conservative using his own words, “Look – don’t d) Plaid Cymru would be in the Government could turn their backs on block it.” difficult position of having to defend the 2006 Act as the basis for If Peter Hain were to get his way, the record of their coalition constitutional development, in favour the Order would therefore be approved Government with Labour; having to of putting in its place their own policies during the last days of Gordon Brown’s stand shoulder to shoulder with for changing the constitution in a way Government and the right to arrange Labour in advocating a ‘Yes’ vote in that would reduce the number of the Referendum would then pass over the Referendum; and then trying to Welsh MPs in the House of Commons. to the National Assembly, to be held take votes off Labour in the election Also, the debate concerning once the Westminster Election is out on the same day. It would be a independence for Scotland will by that of the way. If the Order passed by nightmare for Plaid canvassers. time be at its peak, confusing the issues the National Assembly in February e) The Referendum on the future of at stake in the Referendum in Wales. stipulates September as the preferred Wales would take place on the same The new leadership of the Labour date for a Referendum, that would day as the Parliamentary elections in Party (both in Cardiff and at allow a six month period, enabling both Scotland – and the attention of the Westminster) will be in place and we sides to prepare and the administration media in London will be on do not know what will be their attitude to be put in place. independence in that context. towards the Referendum question. In other words it would be totally This might confuse electors in the So where does all this leave us? My practical. Working in this way would Referendum in Wales as to whether it choice would undoubtedly be to hold a avoid the uncertainty which would arise is independence on which they would Referendum during the Autumn of relating to the attitude of a new be voting (as happened in 1979). 2010. If it was possible to organise this Conservative Secretary of State if they f) The leadership of the Labour Party – somehow or other – then quite won the Election – and the in Wales – including those who definitely that is the date towards which unacceptable possibility of seeing a support a ‘Yes’ vote – would be we should aim. Conservative Secretary of State blocking tempted to play down considerations But there is one other consideration the whole operation. of the Referendum, since their – one that has had very little attention – priority inevitably will be to win the that could make a Referendum in the election and to remain as the party Autumn that much more practical. This Dafydd Wigley is Honorary President leading the Government of Wales. came to my mind as I read Peter Hain’s of Plaid Cymru.

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1 Asse mb ly Special Infant Parlia ment Adrian Crompton provides an insider’s view of law-making in the National Assembly

Richard Roger’s in Cardiff Bay.

The first two years of the operation of Government and have been based on completion of initial pre-legislative scrutiny Part 3 of the Government of Wales competence conferred directly by an by an Assembly Committee is around 12 Act 2006 is only long enough to Act of Parliament. weeks. This is, of course, just one part of permit a preliminary view as to the Typically, these Measures have a process involving pre-legislative scrutiny effectiveness of the new powers. There taken around nine months to complete by Westminster committees, extensive will also be differing views as to how their passage through the Assembly. inter-governmental negotiation and effectiveness might be defined. The NHS Redress Measure - the first consideration of a final draft version by However, it would seem reasonable to to be passed - took 11 months, the the Assembly and both Houses. The four begin with an assessment based on a Learner Travel Measure six months, Orders that have been made took 10 comparison of what has now proved the Learning and Skills Measure nine months, 13 months, 18 months and 12 possible under Part 3 with the months and the latest to be passed – months respectively to complete the previous history of parliamentary the Local Government Measure - took journey from introduction in the Assembly legislation for Wales before devolution, eight months. The Measure awaiting to being made by the Queen in Council. and under the form of devolution Royal Approval is the first Member- Since the commencement of the established by the Government of proposed Measure to have been passed 2006 Act, the scrutiny of Orders, both Wales Act 1998. by the Assembly. A further six in the Assembly and Westminster, has proposed Measures are currently under evolved. In the early days, Orders were Between 1945 and 1999 the UK consideration, two of which are introduced into the Assembly before Parliament passed only 11 Acts which proposed by individual Members Whitehall agreement had been applied solely to Wales, an average of (rather than the Government) and one completed and so pre-legislative approximately one every five years. by an Assembly Committee. scrutiny by the Welsh Affairs Select Between 1999 and 2007, there were a So, over the first two years of Committee occurred after that in the further eight ‘Wales-only’ Acts, operation of Part 3 of the 2006 Act the Assembly. However, more recently pre- including the Government of Wales volume of Wales-only primary legislation legislative scrutiny has taken place more Act 2006. This was an average of one has doubled compared with the previous or less in parallel with Assembly and ‘Welsh’ Act each year. In addition there position under the 1998 Act. the Commons committees working was an increase in the number of Acts To date, four Welsh Government together, formally and informally, to containing substantially separate proposed Legislative Competence Orders share evidence and their thinking. provisions in relation to Wales. have been made conferring legislative The increasing engagement of other In the two years since the powers on the Assembly. Another nine parliamentary committees – most commencement of the 2006 Act, four Orders have undergone pre-legislative notably the House of Lords Assembly Measures have been made scrutiny in Cardiff, including two which Constitution Committee and the Joint and a fifth is currently awaiting Royal have been proposed by backbench Committee on Statutory Instruments – Approval. So far, all Measures made Members. Typically, the time from the has further illustrated the different have been proposed by the Welsh introduction of a proposed Order to the perspectives and expertise that the

24 | www.iwa.org.uk process as a whole brings to the views of pupils. Over 700 responses were Assembly Measures will be of particular scrutiny of each piece of legislation. received which informed the development interest to the Committee. It will check Legislative Competence Orders are of the Committee’s report. whether Welsh Ministers have not the only mechanism by which the The Assembly has established five addressed any concerns flagged up Assembly can acquire further powers. permanent legislation committees, each regarding their delegated powers during Framework clauses within UK Bills also with an independent, non-voting Chair. the legislative passage of a Measure. provide an avenue for the devolution of Prior to this, a separate committee was Generally, the National Assembly has powers to the National Assembly for created to examine each individual piece no formal part to play in the processes Wales. Three Bills containing such of legislation as it passed through the either of conferring legislative clauses were enacted during the 2007- Assembly. Whilst that ad hoc system competence on the Assembly through 08 session of the UK Parliament (the carried some advantages in the potential UK Bills, or in the delegation of powers Education and Skills, Local Transport, policy expertise of the Members from the UK Parliament to Welsh and Planning Acts) and a further two assigned, it proved inefficient in the use Ministers, even though Welsh Ministers are included in the UK Government of Member and committee time. Now, will be accountable to the Assembly and Legislative Programme for 2008-09 – no time is lost in establishing and not to Parliament for how they use those the Local Democracy, Community timetabling a committee each time a powers. One exception is the requirement Empowerment and Construction Bill piece of legislation is introduced. There in the Assembly’s Standing Orders for and the Marine and Coastal Access Bill. can be better management of the flow of the Welsh Government to seek the The picture, therefore, is one of legislation through the Assembly and the Assembly’s consent to the inclusion in steadily-expanding legislative new system has also established a body UK Bills of provisions within, or having a competence via two distinct routes. of Members and Chairs with increasing negative impact on, the legislative When the Government of Wales Act expertise in the specialised task of competence of the Assembly. The became law in July 2006, it conferred legislative scrutiny. Subordinate Legislation Committee has powers on the Assembly in relation to Most recently, the Assembly’s recommended more detailed scrutiny of six Matters. Fast forward to September Subordinate Legislation Committee such Legislative Consent Motions 2009 and the number has grown to 45 completed an examination of how it through the relevant Committee. This Matters of which 13 have been added or can best contribute to the legislative would require the Welsh Government to amended by Legislative Competence role of the Assembly. The Committee’s bring forward the relevant motion and Orders originating in the Assembly. The remit is a wide one – encompassing the accompanying memorandum earlier than remaining Matters have derived from work undertaken by five separate is the current norm. the conversion of framework powers in committees in Westminster – and And to adopt a more proactive place prior to 2006 (11 Matters, one of allows it to do far more than the approach to the examination of powers which has been amended by LCO) and ‘technical’ scrutiny of Statutory being conferred by UK Bills on Welsh directly from Acts passed by Parliament Instruments and the consideration of Ministers and the Assembly, the since 2006 (22 Matters). delegated powers in Measures that has Committee is now seeking to: Although undeniable progress has traditionally been its staple. Potentially, been made in terms of the volume of it is one of the most powerful and • Identify powers in UK Bills which Welsh legislation, criticisms of its influential of the Assembly’s relate to Wales and consider whether scrutiny have been well rehearsed. committees and it has made a series of any powers conferred on the Against this evolving backdrop, the recommendations designed to plug Secretary of State should be conferred Assembly has made important some of the gaps that currently exist in on Welsh Ministers. procedural changes to address the the scrutiny of Statutory Instruments, • Consider, where powers have been rising legislative workload and its European legislation and the effect of conferred on Welsh Ministers within committees have sought innovative UK Bills passing through Westminster. a UK Bill, whether procedures for ways to increase public involvement The Committee will also begin to making subordinate legislation are in making laws for Wales. examine the ‘merits’ of some individual appropriate. For example, the Committee instruments, that is consideration of • Consider whether the Welsh scrutinising the proposed Healthy Eating their political or legal importance, the Government should seek Measure- in Schools Measure felt it was important extent to which they achieve policy making powers, as opposed to to consult with children and young people objectives and whether they implement delegated powers for Ministers, when who would be affected by the legislation. EU legislation appropriately. Statutory Bills relate to fields within Schedule 5 Questionnaires were sent to a ten per cent Instruments brought forward as a result to the 2006 Act. sample of schools in Wales to assess the of powers given to Welsh Ministers in

winter 2009 | 25 politics economy international science environment education health social policy culture

The Committee has already begun this 2 Asse mb ly work by reporting on a number of UK Special Bills, including the Equality Bill and the Apprenticeships, Skills, Children and Learning Bill, which would confer powers on Welsh Ministers. These Legislati ve fog reports highlight the Committee’s view that the Welsh Government ought to Marie Navarro and David Lambert probe the boundaries of the be taking advantage of the National Assembly’s powers opportunities offered to seek Measure- making powers for the Assembly. The recent publication of the ‘Revised’ • Floating exceptions, applying to Whether committee recommendations proposal for an Environmental all Matters. for change in UK Bills are acted upon Protection and Waste Management • Exceptions to the exceptions, or will, of course, be a matter for the Legislative Competence Order (LCO) carve-outs. Welsh and UK Governments and for raises the important question as to Parliament rather than the Assembly. what exactly are the Part 4 legislative These are the provisions contained for As the relatively new Welsh powers of the Assembly on which the example in the draft Environmental LCO legislative system beds down, so too voters of Wales might be asked to which has over four pages of specific the Assembly’s fledging procedures will vote. Do the powers consist solely of exceptions for three Matters. This adapt to changing needs. In the the statutory descriptions together contrasts with Schedule 7 (the potential background is the work of the All with their exceptions as set out on the extended legislative powers of the Wales Convention and the decision as face of Schedule 7 to the 2006 Act? Or Assembly) which at first appears to be a to whether there should be a are there further exceptions, which model of clarity, as it shows no exceptions referendum on transition from Part 3 may be of such importance as to and a clear list of devolved topics. of the 2006 Act (legislation by require full investigation before the The analysis in the July report of the incremental acquisition of competence people of Wales are invited to vote in Assembly Legislation Committee No 4 of and Measures) to Part 4 (legislation by the referendum? the draft Environmental LCO states that, Acts of the Assembly across the whole “The effect of the volume and of the devolved fields of policy). The Part 4 powers contained in Schedule complexity of these new exceptions will It is crucially important to understand 7 are certainly more clearly expressed make it extremely difficult for the that a change from legislation by than the powers which the Assembly public… to be clear where the Assembly Measure (the current situation) currently has under the current system of boundaries of the National Assembly’s to legislation by Acts of the Assembly legislative powers under Part 3 and legislative competence will lie.” under Part 4 of the Act would not affect Schedule 5 to the Act. In this regard we fully agree with Sir the nature of the legislative work that Schedule 5 demonstrates the current Emyr Jones Parry, Chair of the All Wales Members and the Assembly’s staff are recurring problem of ascertaining the Convention, in his 21 August interview already doing. In addition, a transition boundaries of devolved and retained with the Western Mail that, “Law needs from Measures to Acts would mean that powers. This is shown in the various to be clear. It needs to be accessible. the scrutiny of proposed Legislative attempts to come up with exceptions to That means having some clarity about Competence Orders would no longer be Matters (the Matters being the legislative what is the law and who has the power needed, thereby freeing up resources powers of the Assembly). The first to change the law.” The Environmental currently used to support that activity. Matters were very narrowly defined and LCO fails all these tests. The staff of the National Assembly for precise without exceptions. Then A particular reason for its complexity, Wales is fully equipped either for a exceptions to Matters were introduced. given by the Assembly Minister for the continuation of the constitutional status Subsequently the exceptions were Environment to the Assembly quo or, alternatively, for the coming into regrouped in a table at the end of Part 1 Committee, was that it was necessary to force of Part 4 of the Act, if the Welsh of the Schedule 5 and since June this “follow precisely the boundary between electorate should so decide. year a new system of three types of the current executive functions of the exceptions has been devised: Welsh Ministers and of UK Ministers”. Adrian Crompton is Director of A legal adviser to the Welsh Government Business, the National Assembly • Specific exceptions, relating only to told the Committee that the exceptions for Wales particular Matters. had been “negotiated” with the UK

26 | www.iwa.org.uk Government. And the Minister further added that Government “also has been able to give sufficient comfort to our colleagues in Westminster with regard to those powers being granted”. The problem about the latest sets of exceptions is that they are based on the same concept as the Government of Wales Act 1998, which is a system of executive devolution. Described as ‘a process not an event’ this system relied on continuing negotiations between the Welsh Government and Whitehall as to the repartition of executive competencies. The result of these discussions would then be reflected in new Acts of Parliament devolving executive powers to Wales. This meant that devolved competencies were changing continually A plenary debate in the National Assembly. to meet the changing needs of the administrations. comprehensive list of policy subjects Act which is immediately associated Yet this is not in any way a system (similar to Matters) with or without the with the Environment, controls certain suited to legislative devolution. This is exceptions to the Assembly's legislative deposits made in the sea. It is not clear because legislative powers make it competence under the 20 Fields. Not from the specific or floating exceptions necessary to have clarity as to the law and all Fields have exceptions, the Field of made in the draft environmental LCO who has the power to change the law. Environment being an example. that the exception in the Energy Act is Moreover, inbuilt in the 2006 Act is However, the absence of exceptions or reflected in the LCO exceptions. a further inherent problem. Unlike the the absence of a list of specific exceptions However the exception still applies devolution settlements of Northern does not mean that the Assembly has all because of Part 2 of Schedule 5. Ireland and Scotland, in the case of powers in the 20 Fields. This is because What an extraordinary situation that Wales the powers reserved to central of Part 2 of Schedule 7. after four pages of specific exceptions government are not comprehensively set These Part 2 Ministerial functions, and three different types of exceptions in out on the face of the Act. This is a which restrict the powers of the this LCO, the full extent of the legislative problem which is common to both Assembly, are simply not known. Some competence of the Assembly under this Schedule 5 and Schedule 7. It arises of these restrictions may be reflected in LCO is still not known. Multiply this by from the parallel Parts 2 of the Schedules general terms in Schedules 5 and 7, as 20 Fields and it cannot possibly be said which contain restrictions or exceptions listed specific exceptions to specific Fields that there is any clarity as to who has the on the legislation functions of the or Matters; or as floating exceptions in power to change the law in Wales in the Assembly. These override all the Schedule 5. However, it is not known devolved Fields under Schedule 5. provisions of Assembly competence in whether these exceptions follow precisely Schedule 7 is not immune to the Parts 1, namely that the Assembly cannot the boundary between the executive problems arising under Schedule 5. legislate to remove or modify any functions of Welsh Ministers and those It is not clear to what extent the function of a Minister of the Crown of UK Ministers. exceptions stated in the Environmental which existed prior to the So, for example, without a full LCO in Schedule 5 would apply to commencement of Part 3 and Schedule analysis of all the current legislation Schedule 7. There are no listed exceptions 5, or of Part 4 and Schedule 7 without relating to environment and waste to the Field of Environment in Schedule their consent. In turn this means that management, it would not be possible to 7. The only exception governing the whatever the number of specific know whether the exceptions set out in powers of the Assembly in relation to exceptions which are being created in the current Environmental LCO reflect Environment under Schedule 7 is Schedule 5 Part 1, there is also Part 2 all or just some of the powers retained by therefore the Part 2 general restriction of the Schedule to take into account. central government in relation to the relating to the functions of a Minister of a What we have in Schedule 7 is a three Matters described. Consideration of Crown. Without detailed analysis it is not miscellaneous and by no means the Energy Act 2008, which is not an known whether these specific exceptions

winter 2009 | 27 politics economy international science environment education health social policy culture in the current draft Environment LCO 3 Asse mb ly are wider than "the functions of a Minister Special of the Crown"; nor is it known what they are or whether such excepted functions are comprehensive. The example of the Energy Act seems to show that the Cle ari ng l ines of specific exceptions are not comprehensive. There is another problem about Schedules 5 and 7, illustrated by the communication statement from the Attorney General's Peter Hain says the Assembly’s new powers are delivering Office that criminal law is not generally devolved. It was this that prevented the much more than their critics allow Assembly from having legislative competence over the smacking of Wales has benefitted from devolution straightforward than the legislative children in Wales. This illustrates a – a nation quite transformed from the processes of the European Union. possible approach by the UK one we all knew twelve years ago. There are those with an axe to grind Government that the functions of UK That transformation needs to who say that the system is too time- Ministers are to be defined not only by continue if we are to thrive in the consuming and slow. But again, it is specific powers in Acts of Parliament but years to come. But, as the prickly only in an emergency that a also by reference to generic subjects or history of Welsh devolution Parliamentary Bill would complete its 'Retained Fields' for which there is no list. demonstrates, it will be threatened if proceedings much quicker than an LCO. While criminal law is not a devolved the pace of change is forced too hard Critics neglect to mention that we have Field, aspects of the subject area are or opponents of devolution are put in place a flexible system of available to the Assembly to enable it to allowed to bring the process to a devolving powers to the Assembly that enforce its policies. juddering halt. allows many LCOs and Framework If a referendum on further powers Powers to progress in parallel. The was won another problem would need to Under the new system delivered by the upshot is that we are able to devolve far be resolved. This is whether all or some 2006 Government of Wales Act the more powers, far more quickly under the of the recently added specific and floating Welsh Assembly Government request new system than the old system of exceptions to Schedule 5 will transfer to that powers be devolved to the primary legislation. schedule 7 or if they will disappear Assembly through Legislative And what do the detractors offer as altogether. This is particularly important Competence Orders – or ‘LCOs’ as an alternative? A return to the system as in due course the people of Wales they are more popularly known – when we had previously, where we had to fight will be asked to vote as to whether the they need legislative competence to hard to get just one 'Wales-only' Bill in Schedule 7 powers should become the deliver a particular policy aim, and the annual UK legislative programme? Assembly’s legislative powers. However, when there is no suitable vehicle in Or a premature leap to full law-making as with the existing Schedule 5 powers, the UK's legislative programme. powers via a referendum in which YES the extent of Schedule 7 powers is not In addition, it can request the supporters like me would be defeated? known precisely. inclusion of Framework Powers clauses These alternatives are either undesirable Surely Wales deserves much more in Parliamentary Bills which essentially or impractical. clarification, not only to its legislative do the same job as LCOs, giving Other critics challenge as impudent competence boundaries, but also on what legislative competence to the National or somehow 'anti-Welsh' the scrutiny precisely the people of Wales will be Assembly and enabling the Welsh process in Parliament. But in devolving asked to vote upon in a referendum on Assembly Government to deliver its legislative competence from Parliament to moving to Part 4 and Schedule 7 of the policy commitments, but in a much the Assembly, it is perfectly right and 2006 Wales Act. more ‘permissive’ way than had occurred proper that Parliament ensures through with clauses in Westminster Bills before. proper scrutiny that the legislation is clear Contrary to criticisms, the new and achieves its declared purpose. Being system is no more complex than our over-hasty makes for bad legislation and Marie Navarro is a Research Associate system of legislating in Westminster or bad government. and David Lambert a Research Fellow other purpose-built legislatures like the There is plenty of evidence that such with Cardiff Law School. US Congress. It is much more scrutiny has improved the drafting of an

28 | www.iwa.org.uk LCO. For example, in the case of the pipeline – either as draft LCOs awaiting to agreed timescales. Back in 2007, when LCO, the scrutiny approval by Parliament and the the LCO process began, there was far too undertaken by the Welsh Affairs Select Assembly, or proposed LCOs subject to much of a ‘them and us’ culture, both in Committee has resulted in changes to the pre-legislative scrutiny by the Welsh Cardiff and around Whitehall. The two Order to ensure that Welsh language Affairs Select Committee and a Governments were not talking to each duties are imposed in a reasonable and committee of the National Assembly. other freely enough about their respective proportionate way. These LCOs cover a wide range of aims and concerns for each LCO. As a However, I freely admit that we could policy areas including local government, result some early LCOs were published have done things much better at the the Welsh language, mental health, carers, without all aspects having been agreed. Things are very different now. We have London and Cardiff working together from the start of the process. Project teams are established, comprising officials from the Welsh Assembly Government and Whitehall departments, to steer the process of agreeing the LCO and work through any thorny issues before they could develop into serious “Contrary to criticisms, the new system is no more problems. A timetable for reaching complex than our system of legislating in Westminster …” agreement on an LCO is decided by the outset. The desire to show immediate waste and environmental protection. team, informed by the Welsh Assembly momentum in 2007 meant that some of Since 2006, seven Acts of Government’s legislative programme, the early Orders lacked precision and Parliament have included framework with clear milestones in place for each were not underpinned by clear objectives. powers, devolving powers to the stage of the process. Consultation with UK Government Assembly on subjects as diverse as This early engagement between Departments before LCOs were launched health, planning, education and skills, Cardiff Bay and Whitehall has meant that had been practically non-existent. local government and local transport. the lines of communication are much Criticism has inevitably focused on Two Bills in the current Parliamentary clearer than before, and that information the larger LCOs – notably Housing and session include four framework powers is better shared between the two Environment – published when the enabling the Assembly to legislate for Governments. This tighter management process was in its infancy and which ran better access to the Welsh coast and for a of the process has, in turn, resulted in into difficulty. Unsurprisingly, each has path around the coast, and on the way in more concisely drafted proposals agreed presented particular challenges. which Welsh councils are organised. jointly between the Welsh Assembly Nonetheless these have been, or are Again, massively more powers being Government, the Wales Office and the being, overcome, such as agreeing the delivered much more quickly than before. relevant Whitehall departments. They content of the Assembly’s powers in Once made these further LCOs and have specified clearer boundaries to the complex and technical areas of policy framework powers will represent up to competence and set out a clearer and defining where the boundaries of three times the legislation for Wales rationale for the powers being sought. those powers should be. passed at Westminster under the old These changes have meant that As the House of Commons Welsh system over an equivalent period. LCOs are moving through the system Affairs Select Committee – a committee Devolution has delivered powers for the far more quickly than before. They are whose members represent all four Assembly in a total of 45 different areas tighter and have a clearer scope. Most political parties in Wales – commented, since the new legislation of 2006. This is importantly, they are moving forward in the "process is working well and massively more than before, more than a spirit of shared endeavour, with increasingly so over time". In just two six times more powers than under the London and Cardiff working together years four LCOs have been delivered 1998 Act. closely and co-operatively to deliver the dealing with additional learning needs, However, like any other, this process powers that Wales needs. non-residential domiciliary care, can be fine-tuned and indeed already has vulnerable children and child poverty, been to make it quicker and better. For Peter Hain is Secretary of State for and the Welsh red meat industry. This is example, the whole process is now subject Wales. This is an extract from a speech twice the amount of legislation made to far more rigorous project management he delivered to the Wales Governance under the old system. to ensure LCOs are agreed between the Centre at Cardiff University on 29 A further eight LCOs are in the Welsh Assembly and UK Governments October 2009.

winter 2009 | 29 politics economy international science environment education health social policy culture

Spe nding trauma Eurfyl ap Gwilym says the Welsh Government should look for alternative sources of funding to plug cuts in its budget over the coming years

Everyone knows that public 2009-10. In practice the real reduction 0.6 per cent in real terms (that is, expenditure will come under great will be higher because taking the after taking account of inflation). pressure during the coming years. Treasury’s estimate of the GDP deflator The capital reserves for 2009-10 and Given the current economic next year of 1.5 per cent implies a real 2010-11 include funds available for the uncertainties, forecasting is a cut in Wales’s budget of 2.0 per cent. Strategic Capital Investment Framework hazardous exercise. These estimates exclude the allocation of £50 million and £342 million to reserves (see Table 1). respectively. To complete the picture The latest example of the pressure on Reductions in planned spending Annual Managed Expenditure spending public expenditure was demonstrated have arisen from UK budget decisions. (programmes that cannot be reasonably with the publication of the draft Welsh As can be seen the cuts in spending in restricted to three-year cycles, such as Government budget for 2010-11 on 5 2010-11 will be concentrated on public sector pension spending, and October. It states that the Departmental departmental capital investment, with a student loans) will increase from £658 Expenditure Limit for Wales for 2010- reduction of 21 per cent compared million to £721 million. 11 is £15.7bn. However, the sums with this year. Some 7 per cent of this There will be a reduction of £61 allocated to the main expenditure groups reduction is due to the bringing million in capital investment in show a year on year reduction of 0.5 forward of investment into earlier Economy and Transport and a per cent to £15.11bn compared with years. Current expenditure will grow reduction of 17 per cent in investment the corresponding total of £15.19bn in by 2.1 per cent in nominal terms and in housing. Perhaps the most striking

Table 1: Allocation of Assembly Government DEL Budget (£000s nominal)

Main Expenditure Group 2009-10 2010-1 1 Revenue Capital Total Revenue Capital Total Change

Health and Social Services 5,652 412 6,064 5,798 297 6,094 0.50% Social Justice & Local Government 4,327 76 4,403 4,424 78 4,502 2.25% Economy & Transport 718 492 1,210 723 431 1,154 -4.6% Children, Education, Lifelong Learning and Skills 1,678 265 1,943 1,693 183 1,876 -3.4% Environment, Sustainability & Housing 350 450 800 369 349 718 -10.2% Rural Affairs 135 18 153 136 17 153 - Heritage 145 17 162 147 15 162 - Public Services and Performance 59 - 60 55 - 55 -8.3% Central Services and Administration 355 40 395 361 36 397 0.5% Total 13,419 1,771 15,190 13,706 1,406 15,112 -0.5% Reserves 80 50 130 226 342 568 - Other - - 59 - - 58 - Total expenditure within Wales DEL budget 15,379 15,738 2.3%

30 | www.iwa.org.uk reduction is that of 3.4 per cent in According to the leaked Treasury expenditure will remain, in effect, the expenditure on Children, Education, Documents, Department Expenditure responsibility of the UK Government. Lifelong Learning and Skills. This is Limits will on average be cut by 4 per For example if there are moves, as a measure of the pressure on the cent in 2011-12, with cuts of 1.8 per suggested by the Conservatives, to Assembly Government which has, of cent and 3.0 per cent, respectively, in freeze public sector pay, then this will course, no powers either to tax or to in many cases automatically feed borrow but has to make do with the As can be seen through to Wales given the UK-wide sums allocated by the Treasury. nature of most of the public sector pay What is the outlook for spending it is capital agreements. The Welsh Government beyond next year? When the UK investment that will continue its efforts to improve Budget for 2009-10 was presented to will take the efficiency through its Making the Parliament in April 2009 it contained Connections programme and other forecasts for the planned expenditure in biggest hit. initiatives. 2010-11 and some clear indications of As can be seen it is capital the probable levels of public expenditure investment that will take the biggest hit. for the following three years. Here Wales should be better placed Whilst the Chancellor of the than the rest of the UK because of its Exchequer avoided the word ‘cuts’, it the following two years – a cumulative low use of Public Private Partnerships was clear from the very first page of reduction of 8.6 per cent in real terms. and the Private Finance Initiative in the the Budget Red Book that material If there are comparable reductions for past. England and Scotland have large reductions were planned from 2011 Wales (and this will depend on the forward calls on current expenditure to onwards. Capital expenditure cuts of 17 distribution of cuts across the various pay for their heavy use of these per cent per year for each of the three UK spending departments) then the interventions. Wales receives its Barnett years from 2011-12 were made explicit. Department Expenditure Limit for Wales share of such funds but has a relatively Meanwhile, the expected reductions in real terms and using this year as the low commitment to such contracts. in current expenditure could be deduced base year, will be as shown in Table 2. Is it not time, therefore, for the from the overall changes in spending Between 2011-12 and 2013-14 there Welsh Government to look for creative once an estimate was made of the could be a cumulative reduction in the ways of using private sector funding to finance capital investment and thus plug, Table 2: Departmental Expenditure Limits: Wales (£bn real) in part at least, the hole that is now appearing thanks to the UK Government Plan* Estimate** cutbacks? It should be possible to devise 2009-10 2010-11 2011-12 2012-13 2013-14 mechanisms that use privately sourced capital but leave the management of the Current 13.56 13.79 13.46 13.44 13.20 public services in public hands. Capital 1.82 1.72 1.43 1.18 0.98 To those who object in principle to Total 15.38 15.51 14.89 14.62 14.18 the use of private capital it needs to be noted that the UK Government raises * Table C 11. HM Treasury Budget 2009 and WAG Draft Budget 2010-11. its loans in the private capital markets. ** Author’s estimate based on Treasury forecasts. This year alone it is due to raise £220bn. The Welsh Government has had some success in raising capital for increased spending on servicing the Welsh budget in real terms of £2.84bn housing through the European burgeoning national debt and on social compared with the position if funding Investment Bank and private sources. protection (in particular financial support remained at the 2010-11 level for The grim outlook for capital for the unemployed). In the event, each of the following three years. investment funded by government over Treasury papers leaked in September Of this reduction £1.27bn is in the coming years should be a catalyst 2009 show that growth in spending on current expenditure and £1.57bn in for developing additional alternative interest and social protection is expected capital expenditure. funding approaches. to be even higher than those estimated Given this difficult outlook what can by independent commentators in April. the Welsh Government do? Just as the As a direct result the corresponding cuts Welsh Government has no control on Dr Eurfyl ap Gwilym sits on the boards in Department Expenditure Limits will the amount of money it receives, some of a number of public companies and be deeper. of the key drivers for cutting is Plaid Cymru treasury adviser.

winter 2009 | 31 politics economy international science environment education health social policy culture

Ro ad to resilience Peter Davies puts the spotlight on the Welsh Government’s Green Jobs Strategy

In an episode of The Simpsons , a Stevens of ’s battery driven ZeCar® is designed for green city driving. It has five doors, is 3 shady group called the Stonecutters metres long, and is 1.76 metres high. Top speed is 56 mph, has a range of up to 100 miles. It takes eight declares itself responsible for a hours to top up the battery. Most important it costs just 2p a mile to run. On the road price is between £20 - 25,000. The makers claim it will pay for itself within three years. number of mysterious happenings. Today, one of those claims has decline – hasn’t gone away. The technology and providing both a way particular relevance: “Who holds back International Energy Agency estimates out of the recession and the foundations the electric car?” they ask, “We do! that peak oil could arrive as soon as for a more resilient economy. We do!”. The Stonecutters may be 2020. Others believe that problems So the imperative to act is clear, fictional, but electric vehicles are fast could emerge sooner. Last year the UK and to make the necessary transition becoming a reality. Mini, Smart and Industry Taskforce on Peak Oil and government and business must work Mitsubishi are among the brands Energy Security warned that oil prices together. We already have pockets of now engaged in a race to bring the will be escalating rapidly by 2013. We innovation. Stevens of Port Talbot is technology once seen as science need to ask ourselves what shape our already supplying electric vehicles. In fiction fantasy to the masses. economy needs to have in order to the solar energy sector we have G24 protect jobs and create new ones. in Cardiff and Sharp in Wrexham. This sea change in automotive Secondly, on climate change, However it’s now essential that we technology is just one part of a global governments are setting tougher targets support a transition to make low revolution which presents massive to cut emissions, driving demand for carbon technology a core part of our opportunities and challenges for low carbon products through mainstream economy in Wales. business and government and, with it, procurement and regulation. From The Welsh Government has the potential for large numbers of 2011, the Welsh Assembly Government recognised the challenges of building ‘green jobs’. The concept applies as has committed itself to 3 per cent a sustainable, low carbon economy much to changing existing jobs as it annual emissions cuts in devolved areas and unveiled its Green Jobs Strategy does to creating new ones and it’s and from the same year the One Wales Capturing The Potential , which states: relevant to all sectors of our economy, government aspires for all new buildings “Our aim is to support businesses in from call centres to hotels and from to be zero carbon. At a UK level, the Wales in the transition to a more farms to factories. It’s as much about government has set a target of an 80 per sustainable economy and to capture helping Wales out of the recession and cent cut by 2050. From April, the the potential opportunities in new building a resilient economy as it is Carbon Reduction Commitment will technology and innovation. We also about tackling climate change. A green provide a financial incentive for larger need the Welsh economy to become job should also contribute to a strong, businesses to take action. more sustainable and resilient as it healthy and just society. The low carbon goods and services comes out of recession in due course.” Two key drivers of this revolution market is currently worth £3trillion per There is, however, much more to both relate to energy, likely to be a year, predicted to grow to £4.5trillion do to turn this vision into a reality. As major challenge for business and by 2015. Wales has a huge potential it stands, this is something of a ‘bolt- government in the years ahead. First, to be at the heart of this revolution, on’ strategy. What we really need is for the threat of ‘peak oil’ – when world oil turning the world’s first industrial every job in Wales to contribute to a output peaks and enters a terminal nation into a world leader in clean low carbon, resilient economy. No

32 | www.iwa.org.uk Welsh worker can be left out of this businesses can build long-term agenda – whether they are on the resilience, such as minimising the risk of factory floor or at a desk. By taking high fuel prices by producing some of Join the IWA and the right action, we can be ahead of their own energy. However, they will support our work. the game in the global transition we need the right support to make the “The IWA occupies a unique place in Welsh see beginning to happen. transition. The Welsh Government is public life. Its analysis of current issues is We also need a clearer definition of already incorporating sustainability into always professional and extremely helpful. ” what constitutes a ‘green job’. Building its Flexible Support For Business Lord Richard of Ammanford a sustainable economy isn’t just about (FS4B) programme. Going forward, we Chairman of the Richard Commission reducing energy use or carbon need to ensure that businesses get the “The IWA is a quite extraordinarily valuable emissions, important though these things advice they need to flourish in the long body, and I am very proud to be a member are. For the Sustainable Development term, be it ensuring a healthy workforce of it. ” Commission, a sustainable economy is to retain effective staff or cutting Lord (Kenneth) Morgan one that contributes to a strong, just and heating costs by insulating offices. We One of Wales’s leading historians healthy society, within environmental need a clear picture of the skills that “In a time of transition for Wales, politically, limits. As the United Nations workers will need to contribute to the the Institute of Welsh Affairs provides a Environment Programme says: “Green One Wales Government’s vision of a vital forum for all sides to come together jobs need to be decent work, that is more sustainable economy. over both strategically important and contentious issues. ” good jobs which offer adequate wages, Public spending will be an Baroness Ilora Finlay of Llandaff safe working conditions, job security, important factor. The Green Jobs Professor of Palliative Medicine, reasonable career prospects and worker Strategy refers to using carbon Cardiff University rights. People’s livelihoods and sense of measurements in calculating levels of The work of the IWA depends on the support dignity are bound up tightly with their business funding or other support. and contribution of individual members jobs. A job that is exploitative, harmful, Developing this agenda, as well as across Wales and beyond who share our fails to pay a living wage and thus setting standards in procurement, could determination to mobilise the nation’s human condemns workers to a life of poverty make a big difference in developing and social resources in order to face the can hardly be hailed as green.” sustainable products and services. Used challenges ahead. By bringing together partners in business, academia, and the public and This is reflected in the Welsh in the right way, EU Convergence voluntary sectors, the IWA is helping to shape Government’s ‘One Wales: One Planet’ funding can also help this process in economic, social, educational, environmental scheme, which established sustainable the poorest parts of the country. and cultural policy across Wales. development as the central organising While new technology offers great principle of government in Wales. It potential, much of the technology we I wish to become a member and enclose a cheque for £40. names integration of economic, social need for green jobs already exists. and environmental factors as one of Recycling, renewables and resource I wish to become a member and pay by credit/debit card the ‘core principles’ of policy making. efficiency aren’t new and neither are the sum of £ We need to dispel the myth that good employment practices or safe, this type of thinking is some sort of healthy working environments. These Account Number _ _ _ _ /_ _ _ _ /_ _ _ _ /_ _ _ _ expensive add-on for government or sustainable practices aren’t, however, business. In fact, it’s quite the opposite. consistent and widespread. While we Expiry date _ _ /_ _ With policy makers in Wales facing tight promote high-end innovation, let’s not I wish to pay by Direct Debit public finances, we need to squeeze delay rolling out best practice across (This will help us keep our costs down) maximum value from every pound spent the whole economy. Please send me a Direct Debit application form. and deliver multiple benefits. Wise Making sustainable development Please send me details about becoming spending on the economy will also the central organising principle of an IWA Fellow. help government improve health, the economic policy will mean substantial, long term changes, but we can take environment and social justice. The Name: Title: Sustainable Development Commission inspiration from the electric car. From Address: is also calling on Ministers in Wales to comic fiction in the nineties to today’s seize the potential for a ‘green recovery’ business revolution, it shows that – using the post-recession period to build change really is possible. Post Code: resilience by investing in areas such as Tel: Fax: renewable energy, sustainable transport Peter Davies is the Commissioner E-mail: and making homes more energy efficient. for Wales, Sustainable Development By adopting these principles, Commission and an IWA Trustee. Return to: Freepost INSTITUTE OF WELSH AFFAIRS Institute of Welsh Affairs, 4 Cathedral Road, Cardiff CF11 9LJ summer 2009 | 31 politics economy international science environment education health social policy culture Co al in a warm cli mate Gordon James says coal use must be reduced if we are to stand a chance of combating global warming

One of the world’s leading climate Institute of Technology study predicted Here, direct action is on the rise scientists, Professor James Hansen of that we are on course for a global with the notorious Ffos-y-Fran NASA, was arrested earlier this year temperatures rise of up to seven opencast coal site at the for purposely trespassing onto an degrees C by the end of the century. main target of the climate protestors. American coal mining site. He This is almost double the estimate they Sited just 36 metres from homes in one believes his action was justified by made in 2003. of our most deprived communities, this the immense threat to our future of In September the UK Met Office massive hole in the ground should the continued burning of coal. made the frightening prediction that, if never have been given the go-ahead by Professor Hansen has called coal- greenhouse gas emissions continue to a Welsh Assembly Government that fired power stations “factories of rise unchecked, we could see a four claims to have sustainable development death”, and states that “coal is the degrees C rise within the lifetime of as its guiding principle. The fact that it single greatest threat to civilisation our children. A two degrees C rise is did, seemingly as a result of pressure and life on our planet.” regarded by many as the tipping point from Westminster, will be a significant beyond which catastrophic black mark on the legacy of Wales’s His criticisms are echoed in Wales, in consequences, and runaway climate popular First Minister. slightly more moderate tones, by Sir change, are inevitable. Letters obtained by local residents John Houghton, the former chief James Hansen believes the situation under the Freedom of Information Act scientist at the Inter Governmental is so serious that protest and direct reveal that UK government Energy Panel on Climate Change. Quoted in action are now a valid way to tackle the Minister wrote to the Western Mail in September 2008, problem. The democratic process, he Rhodri Morgan urging quick approval he said, “We should put a block on says, is not working because it has been of the planning application. Timms, coal leaving Wales to go into new coal- undermined by corporate lobbying. His whose officials had had regular contact fired power stations unless they’ve got viewpoint has resonance in Wales. with the mining company (Miller carbon capture.” Argent), said the coal would help to So influential in shaping Welsh keep open Aberthaw power station, society, coal is the largest single cause of Wales’ largest single source of pollution. climate change. It is responsible for half Whatever it was that happened of all the carbon dioxide that humans within the corridors of power, approval have emitted. Its powering of the for the mine was granted. Shortly after industrial revolution is the main reason the bulldozers began their excavations, why Britain has pumped more carbon the Welsh Assembly Government dioxide per head of population into the issued its delayed ‘Coal Mineral atmosphere than any other country. Technical Advice Note’ – Condemnation of coal has grown recommending a 500 metre buffer zone alongside the growing awareness of between opencast sites and properties. the immensity of the threat posed by As we confront the horrifying climate change, as new research prospect of a rapidly changing climate, consistently reveals the situation is we are still moving in the wrong worse than previously thought. For direction. Despite the siren calls on instance, in May a Massachusetts climate change, UK production and Opencast mining above Merthyr.

34 | www.iwa.org.uk short time needed to cut carbon dioxide emissions. As well as slashing its use, we have to develop systems to capture and store safely underground the carbon dioxide it emits. James Hansen agrees. Speaking at Cathedral in March he said, “The only way to solve the problem is if we agreed to only use coal if you captured the carbon dioxide and sequestered it.” Friends of the Earth Cymru’s energy campaigner, Neil Crumpton, sits on the government’s advisory body on carbon capture and storage. He reports that several of its demonstrations schemes,

The Ffos-y-Fran opencast coal site at Merthyr: “Sited just 36 metres which capture about 90 per cent of the from homes in one our most deprived communities, it should never carbon emissions, have been awaiting a have been given the go-ahead by the Welsh Government.” green light for two years. It is Treasury policy, not technical issues, that are holding things up. As a result, a fully developed plant is not likely to be commercially available until around 2020. In the meantime, the government has announced plans to allow the building of four large coal-fired power stations with small demonstration carbon capture systems. This sadly will be nothing more than a fig leaf to allow the burning of more coal. What is required is for the government to back stand-alone demonstration carbon capture and storage schemes close to Demonstrators against opencast in Merthyr make their point. the North Sea, where the CO2 can be buried in redundant oil and gas wells. imports of coal in the UK rose between much of our culture is the product of Does this mean there is no place 2007 and 2008, with imports accounting the strong communities the industry for Welsh coal until carbon capture is for over 70 per cent. The biggest rise in spawned. And while some have a commercial reality? If Welsh coal the UK has been in opencast, with welcomed the demise of an industry that replaced imports it could provide a output increasing by over 10 per cent caused so much ill-health, premature temporary lifeline, and would save the in the second quarter of 2009 compared death, pollution and social deprivation, carbon cost of transporting millions of to the same period last year. a number of influential voices believe tonnes from Russia and South Africa. The latest Welsh community to that ‘king coal’ still has a glowing future However, the risk is that Welsh coal wake up to the threat of an opencast because it can be burned ‘cleanly’. output and imports would both increase mine on their doorstep is the One of these, Tyrone O’Sullivan, on the promise of carbon capture in the Gwendraeth Valley. But, as the local makes a strong point when he stated in future. This would be disastrous. Coal press reported on the 19th September, the Western Mail on 20 March that use has to be reduced everywhere if we villagers in the valley are vowing to fight you cannot run the world without coal. are to stand a chance of overcoming the the plans because of concerns about Coal provides over a quarter of global immense threat of climate change. local health and environmental impacts. primary energy needs and generates There remains a strong cultural and 41 per cent of the world’s electricity. emotional attachment to coal in Wales. It would be impossible to completely Gordon James is Director Welsh industry was built on it, and switch off this energy source in the of Friends of the Earth Cymru.

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Quest ioni ng the nuc lear option Hugh Richards reveals uneasiness inside the Assembly Government about the next generation of nuclear reactors

An unintended consequence of devolution is that Wales is finding itself at the centre of international questions about the long-term viability of radioactive waste. Questions being asked by the Welsh Government have uncovered disturbing and hitherto concealed Artist’s impression of the proposed new nuclear reactor at facts about spent nuclear fuel from Wylfa on Anglesey – the existing plant is to the left alongside. new nuclear reactors. will long outlast any benefits. UK government energy review Starved of orders for decades, the In March 2009 a meeting of confirmed that “the unsolved problem nuclear industry is trying to compete in experts, convened in Cardiff by of long-term nuclear waste disposal” a liberalised electricity market by cutting Environment Minister Jane Davidson, was the main focus of public concern costs, both in new designs and the heard that the very high burn-up spent about nuclear power. In 2002 the Welsh operation of existing reactors. To boost fuel proposed for Britain cannot be put Assembly Government joined with the the efficiency of their reactors, operators underground for a hundred years UK Government and the other have progressively enriched the uranium because it is too hot. The use of such devolved administrations to set up a they use as fuel to increase its ‘burn-up’ fuel is in its infancy and there is no programme to tackle the problem of rate. This means that the fuel rods can experience of its long-term Britain’s legacy waste. However, the be left in the reactor for longer, management. Communities such as Assembly does not accept that this sets extracting more energy from each tonne Ynys Mon where there is political a precedent for the disposal of waste and producing less waste per unit of clamouring for a new nuclear power from any new nuclear power stations. electricity. Enthusiasm to allow ever station, could find that their ‘interim Last year, Wales’ Environment Minister greater ‘burn-up’ of fuel to assist reactor spent fuel stores’ become the ‘de facto’ Jane Davidson started inquiring about operators has until now masked growing nuclear waste dumps of the future. the nature of new build waste. concern about the resulting waste. Coastal sites, particularly those on the The current UK government has High burn-up spent fuel from the Severn Estuary could face the daunting decided to facilitate a new generation of reactors proposed for sites such as task of defending interim stores against nuclear reactors, pointing to progress Wylfa on Anglesey and Hinkley Point in centuries of rising sea levels. that has been made in establishing the the Severn Estuary will be twice as hot For over thirty years radioactive concept of a deep geological repository and twice as radioactive as the legacy waste has been identified as an issue that for our existing ‘legacy’ radioactive waste spent fuel that the government wants to is central to the acceptability of nuclear that could be extended to take the waste dispose of underground. Sites of new power. Responding to a Royal from new reactors. This ‘extendibility’ nuclear power stations will accumulate Commission demand that a method be has now been thrown into doubt. and store this hazardous material above demonstrated for the safe containment of In January 2008 the Nuclear Industry ground over very long periods. The long-lived, highly radioactive waste for Association said that such a repository International Atomic Energy Agency the indefinite future, the UK government could readily accommodate the “smaller knows that any benefits of lower pledged as far back as 1977 that it volumes of easier-to-handle wastes from electricity costs during the operation of would “ensure that waste management that new generation of nuclear plants”. reactors in this way will be offset by an problems are dealt with before any large However, the type of fuel that they increase in the cost of managing the nuclear programme is undertaken”. intend to use brings uncertainties about spent fuel. The problem is that the costs Twenty-five years later in 2002, a its safety and the feasibility of its long-

36 | www.iwa.org.uk term storage and disposal. its long-term storage and disposal. break down, future generations may find In March 2007 the International Long-term dry storage of spent fuel themselves with the liabilities of nuclear Atomic Energy Agency reminded Britain above 45,000 MWd/tU is predicted to waste management, but without the that it must not go ahead with a new lead to the failure of fuel cladding. The means to pay for them. generation of nuclear power stations International Atomic Energy Agency Although it is more hazardous to until it has a "clear and robust" plan in long ago acknowledged that there manage, insufficient information has place for the waste. In particular, if the should be a plateau burn-up level in been supplied to judge the long-term public is to be convinced, a credible and confrontation with regulatory constraints safety of high burn-up spent fuel, its satisfactory answer to the management but they have yet to enforce one. containment design, or its ability to of spent fuel is required. We are High burn-up spent fuel will emit withstand aircraft attacks. witnessing a clash between the ten times as many neutrons per second After 18 years in cooling ponds the competitiveness of nuclear power and as legacy spent fuel, requiring greater spent fuel from Westinghouse reactors the long term safety of its spent fuel. shielding. More demanding at every would be transferred to vertical dry Chart 1 illustrates that the burn-up stage of the nuclear cycle, it will casks with only their tops above of nuclear fuel has doubled over the last increase potential worker and public ground, but these are only licensed for thirty five years and is forecast to exposure to radiation. But it is the 20 years in the United States, and the continue rising. Spent fuel to be generation that has to retrieve the spent effects of heat build up on the long discharged from the European fuel from long term storage, condition term integrity of the fuel is unknown. Pressurised water Reactor at Olkiluoto it, encapsulate it and place it deep AREVA, the French reactor company in Finland, with a burn up of about underground that will be most exposed have designed dry casks but have 45,000 MegaWatt days per tonne of to the health detriments. decided to store their British EPR spent Uranium (MWd/tU), is at the limit of The Department of Energy and fuel in ponds until it can be temperature output that can be disposed Climate Change propose that the conditioned. In France they are of in the Swedish repository adopted by operators would, after a period of considering pond storage for up to 300 our Nuclear Decommissioning Authority storage to allow the spent fuel to cool years for high burn-up spent fuel. The as a reference design for the disposal of down and become less radioactive, problem with ‘wet storage’ is that Britain’s legacy waste. encapsulate it in containers for disposal, pumps have to be kept going Because the new nuclear fuel is left and at that time the taxpayer would take continuously and safety could be in the reactor for longer its cladding will title to and responsibility for the waste. compromised by a terrorist attack that become thinner, with higher gas Resources set aside during operation are partially or completely drains the spent pressure within the fuel elements, and to cover the costs. Should these fuel pool. This could lead to the rapid this vulnerability will persist throughout evaporate, in some global economic heat-up of spent fuel to temperatures

Chart 1 Chart 2

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at which the zirconium alloy cladding to make regulatory decisions is that in waste, before allowing any new nuclear would catch fire and release radiation. ‘reducing regulatory risks for investors’ programme. Jane Davidson is right to be Chart 2 is based on official it will pre-empt proper consideration of concerned about the management and estimates of the amount of radioactivity health detriments and dilute the robust security of radioactive waste from new that would be created by a 10GW new and effective regulation of nuclear reactors and to support the call for a build nuclear programme, and stored on hazards. A predictable outcome of public inquiry into justification. sites. There are no historical precedents presenting Britain as the best place in for private corporations conditioning the world in which to invest in nuclear Hugh Richards is a member of the their hazardous wastes a century after power is that untried, untested ideas are Nuclear Consultation Group comprising the income stream has ceased. being pushed harder in Britain than many of the leading UK experts in the Nuclear regulators have confirmed that elsewhere. In the face of new build fields of environmental risk, radiation they do not want to see wastes created nuclear reactors it is unsurprising that waste, energy policy, energy economics, that cannot be managed through to their no community in Wales has and democratic involvement. It has final disposal. Yet the Department of ‘volunteered’ for a deep geological published Nuclear Consultation: Public Energy and Climate Change is reshaping repository for our legacy waste. Trust in Government. The minutes and nuclear regulation in order to speed it up. The justification process for new background papers of the March 2009 Under European law any decision that nuclear reactors has come at a time meeting convened by Environment alters our exposure to radiation should do when regulatory ‘confrontation’ is Minister Jane Davidson can be found at: more good than harm. This principle is required. Waste management and http://wales.gov.uk/topics/environmentcou known as justification. disposal is an integral part of nuclear ntryside/epq/chemicalsradioactivity/radioac However, the danger of allowing a power generation so we have to consider tivity/radioactivewastemanagement/policyb department promoting nuclear power all detriments, including that from the oard/march09/?lang=en Putti ng c itizens hip ce ntre stage

Roger Thomas asks what our public services can learn from Denmark and New Zealand

Wales has an undeniably complex complex organisational model such as personal sense of civic duty and model for delivering public services ours inevitably contains a high degree of acceptance of comparatively high that is arguably a consequence of our inertia, making it insufficiently agile taxation – fits less well with Wales. long full membership – ended just and coordinated in the face of such Through its long association with the ten short years ago by devolution – of demanding challenges. UK, New Zealand is culturally much a quasi-country called ‘England-and- To this mix we should add that the more like Wales and probably a better Wales’. This modelled its public times we live in are probably more place to learn lessons that may be more services around delivery to a challenging to the human race than easily applied here. But both countries population of about 50 million, from anything that has gone before, with the have pointers for us. within which there was a rich seam real possibility of runaway climate From a personal study of public of talent to exploit. Despite the change alongside the fallout from services in these countries, there are four complexity, there was generally little the credit crunch. All these are dimensions which could bring our public shortage of skilled people, although characteristics of Wales, yet anyone who services closer to the Welsh public, with even then Wales’s best were often has worked with or alongside our public consequent gains in efficiency and lured away by the perceived brighter servants at the individual level cannot effectiveness: simplicity, engagement, lights of England’s Home Counties. fail to have been impressed by their collaboration and citizenship. almost universally-high level of Firstly simplicity, because there But for the last decade we’ve had the commitment and sense of purpose. is a direct relationship between this freedom of self-determination that So can we learn something from the and understanding. Looking back at comes with our changed status as ways that things are done in other small New Zealand in the late 1980s, the associate members of ‘England-and- Wales’. And after ten years of devolution we know, both anecdotally Through its long association with the UK, and from in-depth studies such as the New Zealand is culturally much more like Wales… Beecham Review, that our complex delivery model is poorly understood by the public, who are largely disengaged countries where public services are policy/provider split had become from the very services that are there to perceived by their populations to be discredited with the realisation that meet their needs. more successful? Denmark and New there were simply too few resources Furthermore, having the public Zealand are two such countries, with to support the model. services model of a large country carries, populations similar to Wales. Denmark The response has been to organise for a small nation, serious risks, is also of a similar geographical size, public services around the balance primarily because resources become whilst New Zealand shares our challenge between the importance of consistency spread very thinly. This can lead to a of an administrative centre that is (in the service received by the lack of connectivity between services, remote from a significant proportion individual) and the influence of the local resulting in unintended duplication, of the population. context (on the service that was being missed opportunity and consequently Of these two countries, the Danish delivered). Where the need for low public satisfaction. Moreover, a culture – typically Scandinavian in the consistency is paramount – generally for

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understanding, ready scrutiny and feedback on service quality. This is analogous to the business efficiency cycle of ‘Plan, Do, Monitor, and Review’, with an obvious impact on continuous improvement. Engagement with the general public is achieved through face-to-face meetings. Politicians and officials expend considerable energy in being available New Zealand Wales locally and using every possible means of communicating. Social networking Population: 4.31 million Population: 2.98 million sites are commonly used in New Land area: 103,738 sq miles Land area: 8,015 sq miles Zealand to gather views on needs and Maori speakers: 4.2 % Welsh speakers: 20.5% to gauge opinion on the resultant plans and projects. At Wellington City Government Government Council I witnessed a live Facebook 122 members Parliament 40 members Parliament 60 Assembly Members debate on a local plan drawing in Local Government 4 Europe comment from sectors of society such as 12 Regional: 135 Councillors. younger people, who simply would not 73 Territorial: 864 Councillors Local Government be engaged in such issues in Wales. 80 Community Boards:700 Members 22 Unitary: 1,264 Councillors The power of basing communication The following are also elected - 732 Community: 7,994 Councillors methods around the preferences of the District Health Boards – 147 members 1,000 public positions are filled through intended recipients was palpably evident. Miscellaneous trusts – 141 members WAG appointments The overall outcome is that wants are more easily separated from needs and that needs can then be defined. those services personally-received, such reorganisation reflecting this division Decisions made on delivery are widely as health and education – their made local authorities in effect, communicated in the same ways so that organisation is centralised. For the very infrastructure companies. Around 85 expectations are managed. largest of these services, potentially per cent of their funding was raised There is a further level of accessible by anyone within the through local taxation with the result participation in New Zealand. population at any time, a regional that they became highly accountable Community advisory boards are dimension to delivery is added. to their electorates. common throughout public services, Thus health in an integrated service At the same time regional the view being that these are an inclusive of community, public health authorities were necessary to deliver essential component of engagement. and hospital, is structured around larger scale functions such as regional Feedback on satisfaction with public District Health Boards. Delivery by transport, and bulk water supply, or services is key to improvement, and these Crown Entities (New Zealand for where there was a need to assemble a satisfaction in both countries is high. quango!) was believed at the time – critical mass of necessary skills, for New Zealand has developed the Kiwis borne out by subsequent experience – to example permits to extract natural Count annual survey to track its progress facilitate innovation and entrepreneurship, resources and discharge emissions. in improving public satisfaction. It whilst ensuring that the all-important goal The risk of a retreat into a silo followed an exhaustive review of of consistency of individual experience mentality in any particular nationally- worldwide best practice that identified was supported. delivered service is real. This risk is Canada as the leading exponent of the Public services such as district effectively managed in New Zealand art. The hallmark of Kiwis Count is the planning, urban renewal, water supply, at the central government level through simplicity of the nevertheless waste management, and local roads that the joint development of a common comprehensive survey questions. Overall are important within, and ultimately agenda for public services by the Cabinet, satisfaction with public services is now at determined by, the local context are Treasury and State Services Commission. 68 per cent (the private sector is at 58 the province of local authorities. A For the public, simplicity leads to per cent) and on a rising trend. Even so

40 | www.iwa.org.uk it’s interesting to note when looking evidence is the general lack of litter in government by separating them into behind the figures at individual services both urban and rural areas. nationally and locally delivered that the taxman (at 42 per cent) props The New Zealand ideal that all votes services, as in New Zealand. This up the league table. should count equally is delivered in two would surely help deliver the Beecham Collaboration is a common feature of ways. Boundary adjustments average out aspiration of clarity for the citizen. public services in both countries. Where the electoral populations of • Clarity on service provision and individual delivery of a service by a local parliamentary constituencies. And a improvement in service delivery have authority is frustrated by resourcing that system of proportional representation – also been aided in Canada and in New falls below the critical mass, collaboration Mixed Member Proportional Zealand by a citizen satisfaction survey will be taken forward without any central representation, or MMP as used in that manages to be both government intervention. Central and Germany – has replaced the traditional comprehensive and simple in local government nevertheless do meet, First Past the Post (FPP). expression of the results. Our own in forums that explore the issues and the Together these have helped to ‘Living in Wales’ survey could be best way of addressing them. These are increase voter turn out. If MPP had been developed to emulate the good perhaps similar in concept to our Local applied to the 2007 Assembly election in examples of these two countries. Service Boards. Wales, Labour would have returned 24 • We are already talking in Wales about The appointments of public service AMs, Plaid 15, Conservative 15, Liberal how we use social networking leaders are jointly managed between the Democrats 8, and Independents 1. The opportunities to increase engagement appointing department or body and the Labour total includes three ‘overhang’ and participation – we simply need to State Services Commission. Their seats – that is, seats granted for the accelerate this up our agenda. personal development is managed by the lifetime of this Assembly because the • We should take a leaf out of the New SSC-associated Leadership Development party gained three more FPP victories Zealand manual and nurture our Centre. This brings leaders together on a than the number of seats they warranted public sector leaders together. This is regular basis, facilitating a good under MPP. This would temporarily currently under consideration within understanding between them of the have increased the Assembly to 63 the public service in Wales - we need individual departments and organisations members, but arguably have resulted in a to make it happen. that they lead, thereby facilitating all more representative parliamentary body. • And for the long game, we surely must sorts of collaborations. The situation at the local authority incorporate citizenship much more Citizenship is particularly evident in level in New Zealand is particularly comprehensively into our education Denmark, where there is a general and interesting. The average ward size in system. We should make it a core widespread sense of civic duty leading cities is 14,000, leading to a small subject, with opportunities to participate to participation by most individuals in number of councillors. For example, within and outside school, throughout community life. Community groups get Wellington, with a population of nearly the primary and secondary curricula. together around all the important a third of a million, has twenty elected aspects of society, with most people members. In these situations Cabinets are To end on a note of wry amusement, it freely giving up their time to contribute not formed on a party basis since it was remarkable during the pleasantries to one or more groups. Citizenship is would be unlikely that any one party that preceded each of my meetings in developed through being a core subject would have sufficient members, and New Zealand how often the Deans try in the education curriculum. Learning is portfolios are therefore vested in the most of 1905 was raised. This was reinforced through opportunities for competent individuals. The small number undoubtedly a pre-emptive strike against school pupils to play their part in of councillors also means that the city any mention of Andy Haden’s lineout society. This results, for example, in the can afford to pay them, thus opening up antics in 1978 – and which I therefore turn-out of first time voters in Denmark the opportunity of wider representation. took as a tacit admission of guilt. that is close to 100 per cent. The challenge for Wales is to learn In New Zealand, the sense of from these examples of simplicity, citizenship is nowhere near as high, but engagement, collaboration and the government has worked with the citizenship to travel more swiftly to Roger Thomas is Chief Executive electorate to establish the nation’s values, where we want to be. What actions of the Countryside Council for Wales. amongst which lifestyle and environment might give the greatest returns? At least His research in Denmark and New feature most prominently. This has four should be considered: Zealand was associated with the firmly established the ‘clean, green’ leadership programme linked to the image to which most, if not all, New • We can be clearer about the roles and Welsh Government’s Public Services Zealanders subscribe. The simple funding of national and local Management Wales initiative.

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Royal scholarships will help economy punch above its weight Dylan Jones-Evans on a new initiative to bring global talent to Wales

In a world of increasing global best research stipends in the world to bring the best global graduates to work competition and rapid technological bring in the best talent to help improve within Welsh industry to help build up change where small peripheral the Welsh economy. As a result, research capacity and enhance nations such as Wales can be at a graduates will undertake three-year innovative potential. By identifying a disadvantage, economic prosperity placements with Welsh businesses, specific research project, each will increasingly depend on the ability working on science and technology participating business will recruit a to innovate successfully. based projects that are of direct qualified graduate to develop its R&D relevance to enhancing the innovative capability and cutting edge thinking. Last year, the Vice-Chancellor of the capacity of each participating company. Supported by academic supervisors, the suggested that The aim of the programme is to project will focus on developing research the UK was not providing enough that will result in new patents, new resources to recruit sufficient Innovation Scholarship programme products, processes and technologies extraordinary people to be at the frontier links with Softech Systems in Swansea and the creation of spin-out new firms of research excellence. If Wales is to or cost centres to pursue the succeed as a small clever nation, then it Softech Systems Ltd is a small company, commercialisation opportunities. must harness the best of its academic based in Technium Swansea, that has just For potential scholars, the annual talents whilst nurturing the innovative relocated its headquarters to Europe as a stipend will be one of the highest in the capacity of its business sector. means to expand in to new markets from world - £20,000 a year - and tuition This is why the University of Wales their South African operations. The fees will be waived by the participating has launched the Prince of Wales company designs, sells and supports institutions. The scholarship holder will Innovation Scholarships to attract 100 sophisticated multi-user software also receive a research grant of £5,000 of the brightest university graduates packages providing secure, transactional, to cover the cost of equipment, books from the world’s best academic cashless and associated service and travel. institutions to work on research projects management information systems for the These projects will not only within Welsh companies. hospitality and associated market sectors enhance the R&D capability of So far 23 scholarships have been throughout South Africa. businesses, but will boost their capacity approved for support by an independent Softech saw the opportunities to develop new market-led processes, panel of experts. Supervised by Welsh underlying the Innovation Scholarship products, technologies and services, academic institutions, these will be based Programme since the early stages of the thereby improving the innovation in a range of Welsh companies operating initiative, and worked closely with the potential and the competitiveness of at the cutting edge of technology in areas Global Academy Innovation Fellow, the Welsh economy. as diverse as software applications for Daniele Doneddu, to craft a plan for To make the most of the talents the construction industry, cutting edge research, development and available, the University of Wales is also medical research, advanced commercialisation that would take the establishing a full support programme to manufacturing, fuel efficient engines company leaping into a bright future. enhance the capacity and capability of and LED lighting technologies. Dr Ian Wells and Dr Kevin Palmer from each graduate, thus ensuring that they Supported by European Structural Swansea Metropolitan University have are fully contributing to the activities of Funding, the private sector and the been brought in to provide academic the participating company. University’s own resources, this £11.4 supervision for the project. Innovation scholars and participating million programme will offer one of the businesses will be invited to participate

42 | www.iwa.org.uk Global aspirations at the University of Wales: from the left, Chair of the Industry Panel for the Scholarships Professor Jeremy Stone, Director of Research Professor Dylan Jones-Evans, Vice-Chancellor Professor Marc Clement, and Chairman Hugh Thomas launch the Prince of Wales Innovation Scholarships in June in a number of events throughout the Clement - the Vice Chancellor of the Institute of Technology (MIT), one of course of the programme, with the University of Wales - met with the the most entrepreneurial universities in emphasis on innovation management, President of the University of California the World. According to recent research, leadership and entrepreneurship. to examine how both institutions could MIT students, alumni and faculty have Entrepreneurs and executives from the work together to develop innovation founded over 5,000 companies, which best international companies will act as within Wales. With over 50 per cent of now account for employment of over lecturers and advisors, providing the high technology firms established in 1.1 million and annual sales of more participants with the benefit of their Silicon Valley being started by non- than £200 billion. The partnership with experience and expertise in the field Americans, California has demonstrated the Industrial Liaison Programme will of business innovation. that the attraction of graduate talent give Welsh companies which participate The Innovation Scholarships from overseas can boost the economy. in the Innovation Scholarship scheme programme will make a significant Indeed, the fact that the digital direct access to the research expertise at impact on innovation in Wales and has revolution is being led by companies MIT and enable our universities to learn the capacity to help change the Welsh such as Google, YouTube and Yahoo is from some of the best academic economy. Already, a number of high testament to how young scientific talent entrepreneurs in the USA. technology innovative firms have signed can boost entrepreneurial potential. By focusing on bringing the best up to the project to help the University These sentiments were recently academic talent to bear on the Welsh ensure that innovation and enterprise echoed by the former Lord Mayor of business community, the Innovation become a by-word for the Welsh London, Sir David Lewis, who stated Scholarship programme will make a real business sector and to show that a small that “Wales needs to become less insular difference to the potential of the Welsh economy can punch above its weight and more international if it is to match economy and, more importantly, will and compete successfully with the best rival UK countries. We are not outward- signal to graduates and businesses alike in the world. looking and expanding the way that we that Wales is open for business and Already, the University of Wales has should be. The way to grow is to look ready to innovate. been in detailed discussions with some outward, not inward. That can be of the world’s leading research addressed through education, by Professor Dylan Jones-Evans universities in Europe, the USA and welcoming foreign expertise to Wales”. is Director of Research and Innovation Asia to discuss ways of collaborating on Another demonstration of the with the University of Wales. For this project and bring some of the best commitment of the University of Wales more information on the Innovation students to Wales. to link with global talent is the formal Scholarships programme visit Earlier this year, Professor Marc partnership with the Massachusetts www.globalacademy.org.uk

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Aircondit io ning What is the size of Wales? for the planet 8,015 sq miles or Ru Hartwell reports on an initiative to sustain 20,758 sq kms. an area of tropical rainforest ‘the size of Wales’

As the world prepares to come used to describe rates of environmental In 2006 the Stern Report identified together to address tropical degradation (typically deforestation) as the protection of these forests as our deforestation at the Copenhagen in: “We lost an area of rainforest six most cost effective strategy to slow Climate Summit in December, there times the size of Wales last year.” So climate change, with annual emissions is a growing recognition that we all unwittingly, and perhaps unfairly, our from tropical deforestation more than need to take much more responsibility nation has become associated with a those from all the world’s transport for the problem. The ‘Size of Wales’ process that is endangering the future of systems combined. Project sets out the vision for a life on earth. Our purpose is to turn this According to a 2007 report for the national scheme aiming to sustain an negative association on its head and National Assembly, Wales is ranked 12 th area of tropical forest in Africa equal engage the whole country in a unified in the world in terms of annual per to the land area of Wales . response to the problem. capita CO2 emissions. However, this Why should Wales unite to defend takes no account of our ‘legacy carbon’, Whilst small countries such as Norway tropical forest? At this time of economic the greenhouse gas we have been have governmental initiatives to protect difficulty when many of us face an releasing continually since the industrial tropical forest, the Size of Wales project uncertain future, shouldn’t we be revolution, or the heavy methane would be a world first: the first time that focusing on problems closer to home? footprint of our ruminant based civil society, the private sector and the The answer is quite simple. Tropical agricultural sector. The unfortunate and state would come together to fight forests function as the entire planet’s unpalatable reality is that our carbon climate change in an integrated manner. air conditioning system. intensive way of life is linked directly Our hope is that if this ambitious aim can be accomplished other small nations may be inspired to emulate our ground- breaking model. The project, which would be implemented by the Wales Millennium Development Goals Task Force, is about partnering with a variety of communities in a range of African contexts to assist them in moving towards sustainable use of their forest resources. It is not about preserving a single tract of virgin rainforest. It would aim to raise awareness and engage all sectors of Welsh society in the defence of this critically important and carbon-rich ecosystem through a variety of innovative interventions. We are all familiar with the phrase Christine Konini, one of 50 ‘Size of Wales’ participating farmers of the Bore Community at Malindi near Mombasa, Kenya, tags a cashew nut ‘the size of Wales’ which is commonly tree bought by a customer in the UK wishing to offset carbon emissions

44 | www.iwa.org.uk diverse array of community groups in Wales. These partnerships would enhance existing community links such as those under the immensely successful Star Communities Scheme and would also provide a perfect opportunity to educate and raise awareness of the issues with a clear overlap to the Assembly Government’s Education for Sustainable Development and Global Citizenship Strategy. Private sector involvement would be essential to the long term viability of the scheme and there should be a wide selection of ways for Welsh business to participate. Options would include protection of Kenyan coastal forest by the 1,000 hectare and sponsorship of community tree planting in Mali through to a certified carbon compensation scheme supporting small Map showing the 30 or so participating scale forestry in Uganda. Individuals ‘Size of Wales’ projects so far across southern Africa. The project, which is wishing to take part would do so at a very early stage, ultimately aims to through the Size of Wales website establish tree plantations totalling 20,000 square kilometres, the size of Wales. featuring information on the project portfolio in Africa and allowing online donation on a project specific basis. We have yet to feel the full effects Our planet is on the cusp of a catastrophe. of climate change in Wales and it is This is a crisis situation and in such tempting to ignore problems in distant circumstances we need to employ every parts in favour of pressing needs closer strategy at our disposal to reduce emissions. to home. Tropical deforestation is one problem we would do well not to ignore. The Size of Wales project is one and causatively to climate change. The The answer here is again simple. way a small country can punch well irony is that in large part it is the poor Our planet is on the cusp of a above its weight to show decisive communities of the underdeveloped catastrophe. This is a crisis situation leadership, take responsibility and make world, typified by sub-Saharan Africa, and in such circumstances we need to a real difference in our transition to that are bearing the brunt of the employ every strategy at our disposal global carbon retention. climatic changes that our carbon to reduce emissions. That means using effluence has created. fewer fossil fuels to heat, eat and travel Could the Size of Wales project as well as helping tropical communities Ru Hartwell is Consultant to the Size of help us make the difficult transition to to preserve their forest carbon. The two Wales project. The Project is an initiative becoming a carbon retentive society? strategies are both part of the continuum of the Wales and the Millennium Some might argue that a national of responses that we need to adopt to Development Goals Task Force and is project to protect tropical forest may effectively address climate change. supported by the Waterloo Foundation. even encourage a laissez faire attitude We aim to have examples of a The newly appointed Project Manager towards our own carbon emissions. variety of interventions up and running for the Size of Wales project is Hannah People might feel that if we were to by early next year. The foremost of Scarse, formerly Woodland Officer with have an integrated national scheme to these and the backbone of the project the Woodland Trust and Chair of the retain the carbon in these African would be provided by a network of Board of Directors of the UK Forest tropical forests, we could relax about community partnerships linking grass Stewardship Council UK. Contact reducing our home footprint. roots forestry projects in Africa with a [email protected]

winter 2009 | 45 politics economy international science environment education health social policy culture

Garlic ’s secret weapon Andrew Shearer on how a Welsh discovery could have global impact

It is estimated that Wales’s 10 killing of intestinal worms. examples of areas of interest include million sheep and 240,000 cattle Neem Biotech is pushing for solutions for Hospital Acquired emit about 2.3 million tonnes of sustainability not only in its products Infections such as MRSA and C methane every year, which is 5.5 per but in its business model as well. It difficile , malaria and cancer. The cent of the country’s ‘official’ total plans to provide the Mootral feed garlic extract’s properties include of 42 million tonnes. This may not additive free to farmers, with revenue being highly anti-bacterial, anti-fungal, appear a great deal. However, unless derived from offsetting of carbon credits. anti-viral, immuno-boosting, and we tackle the carbon footprint of our Carbon emitters such as the airlines will insect repellent. ruminants, then by 2050 they will invest in the feed by offsetting their The Company has developed account for half our greenhouse gas emissions via carbon credits which patented technology for the low cost emissions if we achieve the UK would be used to buy the feed to be extraction of compounds from plant target of reducing our overall distributed to farmers. Where possible biomass without the use of column emissions by 80 per cent. the product will be produced locally in chromatography, a high cost process. the countries in which it is intended for As well as allicin from garlic it is Which is why feeding them with the use. This will significantly cut the costs extracting azadirachtin from the seed garlic extract Mootral, developed by the Cardiff-based natural products extraction company Neem Biotech, could be so Neem Biotech focuses on commercially important. Allicin is the active agent in garlic (giving it its pungent smell and viable and sustainable projects where taste) which has significant antibacterial there is a clear market need for new properties. Mootral is an animal feed innovative products. additive containing allicin, which limits the growth of the methane-producing bacterial colonies in a ruminant animal’s first stomach. of transportation and reduce greenhouse of the Neem tree which grows in Neem Biotech worked with scientists gas emissions further in the process. Not tropical regions of countries such as at IBERS Aberystwyth University to only that, cows produce more methane India. This has potential applications test more than 3,000 plant extracts. Of in the developing world than in the in head lice shampoo, soap, toothpaste these, allicin was discovered to be the developed world, because of their feed. and insect repellent. ‘secret weapon’. In a rumen simulator, Neem Biotech focuses on Neem Biotech undertakes research the researchers found that the garlic commercially viable and sustainable into scaling up to kg scale. Typically extract cut methane output by 94 per projects where there is a clear market only 0.1 per cent of a particular cent. Not only that, but because allicin is need for new innovative products. It compound is found in a plant and it an antibacterial it can potentially benefit sees itself as well positioned to take undertakes to develop methods to scale the animal’s health, with potentially less advantage of the trend away from up 10 per cent plus of a particular need for antibiotics, increased resistance chemicals to more natural alternatives. compound in the fraction. This is often to bovine tuberculosis and mastitis and As well as methane reduction, other the most difficult step and makes it

46 | www.iwa.org.uk Become a Fellow and support our work. “I appreciate the immense contribution that the Institute has made and is making to the life of Wales. We would be much poorer without it. ” IWA Fellow, Labour Peer Lord Gwilym Prys Davies “I am an admirer of the quality of the work produced by the IWA. Its research and publications are of inestimable value to Wales and its people. ” IWA Fellow, Liberal Democrat Peer, Lord Livesey of Talgarth “The IWA fulfils a vital role in Welsh civic society. If it were not there it would have to be invented. ” IWA Fellow, Rt. Hon. Dafydd Wigley Honorary President, Plaid Cymru “As someone who has been involved all of my professional career in thinktanks, research bodies and policy units, I would like to pay tribute to the way in which the IWA has clearly established itself as a leading forum for debate in Welsh political life. ” IWA Fellow, Conservative Peer Lord Griffiths of Fforestfach Fellows of the IWA are able, if they so wish, to become involved in shaping the work programmes of the IWA. In addition Fellows will: • Receive special recognition in the IWA’s regular It is estimated that Wales’s ruminants emit journal Agenda (unless they have 2.3 million tonnes of methane every year, some chosen to give their support anonymously). 5.5 per cent of our greenhouse gas emissions. • Be invited to special Fellows events each year. • Have access to the IWA for policy advice and briefing. considerably easier for further Biotech. Together with the sustainable We ask that Fellows subscribe a minimum annual purification by others. business model, Mootral has been short payment of £200 to the Fellows Fund. Life fellowship Significant progress has been made listed as one of five solutions to solve will be bestowed for a single payment of £1,000. during 2009 in the production of stable Climate Change in The Financial Times These donations will qualify under GiftAid. garlic metabolite, ajoene, and a patent Climate Challenge Competition 2009. I wish to become a Fellow/Life Fellow has been lodged on its production and The product also reached the final of the and enclose a cheque for £200/£1000. certain applications. Ajoene has anti- 2009 Dutch Lottery Green Challenge I wish to become a Fellow/Life Fellow clotting properties, which helps prevent Competition and is currently in the final and pay by credit/debit card the sum of platelets in the blood from forming of the 2009 World Challenge £ blood clots, potentially reducing the risk Competition, aimed at finding projects or Acct No. _ _ _ _ /_ _ _ _ /_ _ _ _ /_ _ _ _ of heart disease and stroke. It is also small businesses from around the world Expiry date _ _ /_ _ known to have effective broad-spectrum that have shown enterprise and I wish to pay by Direct Debit antibacterial and antifungal properties, innovation at a grass roots level. Neem (This will help us keep our costs down) helpful in preventing yeast infection and Biotech sees itself as an active force in Please send me a Direct Debit application form. treating athlete's foot, for example. the development of methods of extracting Please send me details about becoming an IWA Fellow. Ajoene has even been shown effective in active compounds from plants worldwide. inhibiting tumor cell growth. It is interested to collaborate with others Work is also underway on a to develop standardised plant and marine Name: Title: simplified method for the production of extracts in a variety of market sectors Address: high-purity artemisinin, which is used promoting Welsh innovation worldwide. for the treatment of many illnesses, Post Code: such as skin diseases and malaria. Andrew Shearer is Director of Tel: Fax: This has been a good year for Neem Neem Biotech. E-mail:

Return to: Freepost INSTITUTE OF WELSH AFFAIRS Institute of Welsh Affairs, 4 Cathedral Road, Cardiff CF11 9LJ feature Qual ity ana ly sis from the iw a

Late last year the IWA launched a blog site (www.iwa.org.uk/blog) to deliver expert All they want is a job comment on a wide range of issues. We are now only weeks away from launching a 20 October 2009 wholly new website which will include clickonWales /clicarGymru as an expanded site featuring a wealth of information about Wales and high level commentary on Welsh Howard Williamson, Professor of European topics. The new website will also make it easier for the IWA to engage with its members Youth Policy at the University of and with the wider public. Here is a flavour of what has appeared in recent months. Glamorgan, focused on NEETS – young people not in employment, education or Assembly should debate EU’s central challenge will be to focus training – ahead of an IWA conference on Lisbon Agenda as much on the social situation as on the issue. The ‘official’ estimate for Wales 23 October 2009 economic growth. We have lived through is that 12,000 young people - between 10 a period dominated by the unregulated and 12 per cent of the age group – fall into Hywel Ceri Jones, a former Director rule of market forces. Now they need this category. General with the European Commission, sound regulation which is properly policed “Yet the scale of the challenge is but one argued that Wales should be alert to the and implemented. part of the context. Where policy has failed opportunities from more co-ordinated Sustainable development and the rather miserably is in differentiating between European Union economic and social wellbeing of people need to be clearly seen the ‘disengaged’. They are by no means all policies in the wake of the Irish Yes vote as an integral and inclusive part of this the same and of course there are different on the Lisbon Treaty. policy agenda. Indeed, economic growth will criteria on which they can be disaggregated, “The search for a more effective be increasingly dependent on successful such as attitudes, previous experiences, architecture of global governance, across sustainable development policies. That is current circumstances or something else. the whole range of policy concerns, is why the so-called Lisbon Strategy will again My own ‘classification’, some years ago, leading inexorably to stronger EU level dominate the EU policy debate, with this related to the ‘seriously confused’, the machinery to negotiate at the global level, new switch of emphasis and concern. ‘temporarily sidetracked’ and the ‘deeply as occurred earlier in the field of external Crucially, too, the policy priorities alienated’. The first two groups were not trade following the creation of the single defined in the Lisbon Agenda are being fundamentally opposed to ‘re-engagement’ European market. adopted as requirements for the application - the former needed attention and Despite the limits and weaknesses of of the EU’s Structural and Cohesion Funds. encouragement, the latter understanding the Lisbon Treaty, one of the most This, of course, will primarily affect those and patience. In contrast, the last group had significant reforms it will introduce will give Member States which are beneficiaries and switched off from mainstream participation, much greater authority to the European put pressure on them not to make the error and had either sunk into ‘purposeless’ Parliament as a co-decision making of the past committed by some Member behaviour (drinking, drug misuse) or institution with the Council of Ministers on States of clawing back the additional become active in more ‘purposeful’ most areas of EU policy as well as in European resources to prop up their own behaviour (instrumental criminality). determining the EU budget. National budgets rather than breaking new ground As one lad said, ‘I’ve got alternative Parliaments, too, will have a greater say in with the necessary reforms. ways of living’. The point here is that policy the process in future. For Wales, in the remaining period till approaches have also to be differentiated in The same will be the case for those 2013 of the present allocation of Cohesion recognition of these differences. Too often, ‘regions’ like Wales which have legislative funding, this is of crucial importance. The they are not. powers and which will have the right of National Assembly should debate the thrust Policy has to consider both preventative pre-scrutiny of proposed EU legislation as of the Lisbon Agenda and its relevance to measures and ‘bridge-building’ an explicit part of their Member state the needs of Wales. It should identify more opportunities. The latter have to be sure scrutiny. Consequently, the new Treaty will effective ways of linking EU with domestic that they command some level of relevance represent a considerable though still policies to achieve greater impact. After all, and credibility for the individuals in question. incomplete move to improve the such linkage was one of the four claws of Too often, they do not. What many, if not democratic governance of the Union. the Celtic Tiger’s success story in generating most, of these young people want is work The scale and impact of the recession strong growth before the present calamitous and income, in other words a job. They are are now being felt throughout Europe. The housing bubble hit Ireland.” unwilling to be fobbed off with what they

48 | www.iwa.org.uk often see as meaningless and unattractive authorities, 4 per cent from Europe, with little attention is paid by the British media? training ‘opportunities’, even if – to the another 4 per cent from the National Indeed, how many people in Britain even labour market analyst – these make most Lottery. As for the remaining 53 per cent, know elections are going ahead, leave sense to a particular context. the public donates 26 per cent, with another alone could hazard a guess at the names And this is the overarching issue. 20 per cent coming from trading and of the parties or the candidates? How do we reconcile what may appear investments, 4 per cent from business and While neither country has the same to be a rather wishy-washy ‘youth work’ only 3 per cent from trusts and foundations. inter-connections with Britain politically, approach to those who are NEET? How There is just the possibility that voluntary socially, militarily or culturally as the US, do we connect the often devastating organisations in Wales, often with tiny staffs Germany is a key partner of the UK within consequences of teenage idleness with or no staff at all, find it easier to apply for the EU, as well as being its biggest member. the tough-nosed labour market and public funding schemes in Wales than to As such, many of the objectives Britain is economic imperatives that usually govern research the thousands of private trusts that seeking to achieve within the EU, will the recruitment strategies for the jobs that exist, most of them outside the country. require close co-operation with the German these young people really want? These The Trusts themselves acknowledged government. As such the outcome of the are the vital questions that policy makers that there is often a difficulty in dealing with German election is important to Britain need to address.” the small scale of almost everything in (and Wales) and the public deserves to be Wales. In discussion several started to think better informed. in terms of what consortia of private trusts Japan is perhaps a different case but it, Money going begging could do to tackle issues in a coordinated too, is a very significant trade partner and 9 October 2009 way, either on an all-Wales basis or, more has much experience of dealing with the likely, across a more limited area. impact of recession. In its way, too, the Geraint Talfan Davies, Chairman of the Equally, there might be a role for the Japanese election result has been as IWA, reported on a conference of UK trusts WCVA, by adding to its existing training and significant and momentous as the election and foundations in Cardiff convened by the support services with more research and of the first black president. The new prime Waterloo Foundation and the Association brokerage, leading to the aggregation of the minister Yukio Hatoyama leads a party of Charitable Foundations. Almost all the needs of organisations with similar issues which has just broken a 50 year delegates claimed that they did not get into larger applications. stranglehold on power by Japan’s Liberal enough funding applications from Wales. It’s not just a question of bringing more Democratic Party (LDP) and may have a “Why should this be? Graham Benfield, of money into Wales, although we could very different take on the economy, society the Wales Council for Voluntary Action, told certainly do with the extra £66m that would and international relations from its long- us that that there were 30,000 voluntary bring us up to the magic 5 per cent share of lasting predecessor. organisations in Wales, representing half a UK trust giving. It’s also a question of Getting people in Britain, and in Wales, million volunteers. This speaks volumes for the philosophy. The underlying value of the to take an interest in political developments community spirit in Wales. Uniquely in the voluntary sector is to keep open that public even closer at hand has become UK, this has been recognised in the devolution space that is neither tied to government nor increasingly difficult and as newspapers statutes that decree a partnership between private business. We must be careful not to circulations have declined, managements the Assembly and the sector, complete with let our voluntary sector be nationalised.” appear to have taken the perverse and even a Voluntary Sector Partnership Council and counter-intuitive view that even more of the County Volunteer Councils in every county. same sad formulae which now account for The awful thought occurred that Welsh Only in America most daily coverage – crime, celebrity, and organisations may be passing up the chance 18 September 2009 sport - is needed to stop the rot. of funding from trusts and foundations If newspapers are a lost cause, because, as Professor Kevin Morgan of Rhys David, former Financial Times however, it is surely time the BBC looked Cardiff University often argues, Wales has executive and an IWA Board member, at the overwhelming emphasis it places in become too Welsh Government-centric. contrasted the blanket coverage of the US its coverage of world affairs on the US and The thought was buttressed by Presidential election last year with the provided the British public with a much Benfield’s data which showed that 43 per sparse coverage in Britain to the elections fuller account of what is going on in other cent of the income of the voluntary sector in in Germany and Japan. important partner nations, particularly our Wales comes from public sources: 22 per “Why is it that when the second and continental neighbours. The German and cent from the Welsh Government, 17 per third biggest economies in the world – Japanese elections would have been a cent from local government and health Japan and Germany – hold elections, so good starting point.”

winter 2009 | 49 politics economy international science environment education health social policy culture

Life so urce

David Culshaw reports on harvests, which has caused an increase in reputed to have said: "If the bee the decline of the honeybee the price of local honey. There is disappeared off the surface of the globe, nothing we can do about the weather, then man would only have four years of but we must do something about the life left. No more bees, no more decline in honeybee stocks. pollination, no more plants, no more Honeybees are in decline. It is not The role of honeybees as producers animals, no more man." only in Wales and the rest of the UK of honey is well known, but their loss is Honeybees live in colonies, which that this is happening, but also on a major threat in the biodiversity of our survive through the winter. Come spring, most continents around the world. countryside. They are a major pollinator in a healthy colony, the queen will start The decline may be for different of the food that we eat, and of wild to lay eggs at an increasing rate. In late reasons in each country, but we need plants that feed birds and wild animals. spring the queen will lay approx 2,000 to find an effective treatment for the Bees pollinate more than 90 of the eggs a day. This results in a colony of decline in our own honeybees. flowering crops we rely on for food. 20,000 to 50,000 bees for the summer. Among them are apples, nuts, pears, It will be seen from this that in numbers, In recent years the decline has reached avocados, soybeans, asparagus, broccoli, the honeybee is a major pollinator. 30 per cent a year, up from about 6 per celery, squash, tomatoes, sunflowers and A colony of honeybees has one cent in 2003. Feral colonies of wild bees cucumbers along with citrus fruit, queen; she is the mother of all the other have become virtually extinct. Honeybees peaches, kiwis, cherries, blueberries, bees in that colony. Her normal useful are under threat from pests and diseases, cranberries, strawberries and melons. life is about two years, but she can live treatments for which are not always fully Crops like oilseed rape (increasingly used longer. The usual population of a colony effective. To some extent the decline of in biofuels), alfalfa, peas, runner beans varies from 10,000 in the winter to the bee reflects the loss of wild habitats, and broadbeans also rely on visits by 50,000 in the summer, and is made up intensive farming and overuse of bees and other pollinating insects to of female workers all the year round and pesticides and herbicides. The simple improve the quality and quantity of a few hundred male drones in the spring truth is that bees need flowers, and there fruits and seeds produced. and summer. Female workers are the are fewer flowers to be found in the It's hard to believe that one small product of fertilized eggs. farmed countryside these days. The wet creature can be so important to our food The workers do many and varied weather over the last three years has also supply. Albert Einstein was certainly well jobs in the colony, including feeding the been the cause of very poor honey aware of the connection. As he is queen and brood, and the drones,

50 | www.iwa.org.uk generally cleaning the hive, storing nectar and pollen. Later in their life they become foragers, which you will see collecting pollen and nectar from flowers in your garden. The life of a worker varies with the amount of work they do. During summer with the long working days they may only live five weeks, yet in winter, when they are confined to the hive, they will live up to six months. Male drones are the product of unfertilized eggs, they do not work and are unable to feed themselves. Their job in life is to mate on the wing with new queens for other colonies, those that mate die in the act. Come September all drones are ejected from the hive and die. Drones are only required for mating in spring and summer, in winter they would be surplus mouths to feed. Recent publicity of the decline in these imports. It is also thought by some roles and responsibilities of government honeybees has prompted many new that insecticides may have been one of and other stakeholders. beekeepers. This is excellent for the causes of honeybee decline, and this At a meeting with representatives of beekeeping, but the shortage of bees to does need to be investigated. the Welsh Beekeepers Association the increase stocks means that many may be The National Bee Unit, which is part Minister said, “Honeybees and other frustrated in their attempts at the start. of the Food and Environment Research pollinators are vital for food production, Honeybees and queens have been Agency, employ regional and seasonal which is key to the environmentally imported into the UK for many years, bee inspectors. Their job is to check sustainable farming we are promoting in to help beekeepers increase their stocks. honeybee colonies within their area for Wales. Several initiatives are underway to There is an opinion that this is where disease and pests. Occasionally they take tackle the decline in the bee population, our troubles started, but until firm facts samples of bees for testing in the and working together will be the key to are found it would be difficult to ban laboratory. There is a register of apiaries achieving the objectives of these projects. called ‘Beebase’ set up by the Unit on I am keen to establish how we can which beekeepers can register their complement the work of the Welsh apiaries. At present the law does not Beekeepers Association and also how require beekeepers to register on Beebase it can support us in our policy or with any association or government development of bee health in Wales”. agency. Unfortunately this means that The Welsh Beekeepers Association there are many apiaries that are not has funded a project in Anglesey to inspected. Maybe the non-registered establish if it is possible to breed a beekeepers are suspicious of the intention honeybee that can either tolerate or of inspections. But invariably the attack the varroa mite. This project is at inspectors that I have had dealings with an early stage, and will take some time have been knowledgeable and helpful. to complete. This is just one of the In May 2009 Rural Affairs Minister many problems that face the honeybee, announced funding of and the UK Government fund of £10 £486,000 by the Welsh Government to million over five years should be directed protect honeybees in Wales. It will be to establishing an ongoing programme working closely with Defra and of research into saving the honeybee. beekeeping associations to draft the Healthy Honeybees in England and David Culshaw is Chair of the Welsh Wales plan that sets out the respective Beekeepers Association.

winter 2009 | 51 politics economy international science environment education health social policy culture

1 Landscape Ruth Williams finds much to applaud in a Special new IWA report on the Welsh landscape Sunset over the hills of Lleyn, as seen from Llanfihangel-y-Traethau on the Dwyryd estuary, Gwynedd. Photo: John Briggs

Spiritual resource

Wales is blessed with so many report rightly recognises that climate countryside, and then determine what stunning landscapes. This fact is change is likely to alter the demand for, policies and actions are required to superbly illustrated in the IWA’s new and supply of, all of them. In fact, as achieve it. Necessarily this approach report Living with our Landscape , a the report emphasises, “The whole of needs to take on board community study initiated by the late Merfyn the landscape and environment of involvement and engagement, including Williams of Croesor and supported by Wales is a strategic national resource cultural and linguistic considerations, as the Countryside Council for Wales. that underpins the rest of our well as the social and economic needs economic, social and cultural activity.” of people living within (and without) While not the biggest in the world, it is The report covers a wide spectrum designated areas.” their diversity and intimacy which makes of issues ranging from local Welsh landscapes so special. Most of us environmental management in every part The concluding proposals in the have an instinctive appreciation of a of Wales, to planning for climate change, report are: dramatic sunset over the hills of Ll yˆn, the to the very specific case of what services sweep of beach, or the legend- National Parks should provide in 21 st • To use the Green Infrastructure laden aura of Carreg Cennen castle. All Century Wales. Very sensibly it says, approach as a foundation for achieving are beautifully captured in this report. “In addressing these issues we should sustainable development. So we ‘get’ the aesthetic and emotional first focus on what we want from the • To support exemplar or flagship appeal of landscapes, but how projects such as the Cambrian often do we think beyond that Mountains and Valleys Park initiatives to the ‘goods and services’ they to improve integrated planning and provide to humankind? management of economic, social and This report advocates the environmental well-being. ‘ecosystem services’ approach • For the Welsh Government to promote to our Welsh landscapes, legislation to provide National Parks and showing how we are other protected landscape organisations dependent on our land for in Wales with a wider socio-economic public ‘goods’ from tourism to remit, as is the case in Scotland. food, management of water, energy production, To come to fruition these proposals need biodiversity, carbon to be seen as helping to deliver the sequestration and retention, Government’s Scheme for Sustainable soil conservation, access and Development in its policy document amenity. However, these are One Wales: One Planet. Its vision is for Cover of Living with our Landscape report: services which the report says the photo (by John Briggs) shows the Wales to live within its environmental “the market alone cannot be distinctive whaleback peak of Tryfan in the limits, to become resilient to the impacts Snowdonia National Park, one of 15 expected to deliver”. The mountains in north Wales over 3,000 feet of climate change, to have healthy,

52 | www.iwa.org.uk The exposed Lleyn landscape. Photo: John Briggs biologically diverse and productive systems which provide multiple benefits. dispassionate analysis of landscape ecosystems that are managed sustainably, As the guardian of one sixth of the policy, the subject can create passionate and communities which are safe, Welsh coast, the National Trust also arguments, whether about wind turbines sustainable and attractive places for feels attention needs to be given to or the future of National Park people to live, work and enjoy. coastal and marine elements of our Authorities. We take the landscapes of As a society we take for granted landscapes. We want to emphasise the Wales for granted at our peril. After all social and economic infrastructure such need to safeguard the remaining they not only provide us with quality as our health service and transport undeveloped coastline outside protected time, but spiritual enrichment. It’s hard systems. Now the many drivers including areas, whilst working with the inevitable to put a monetary value on such climate change, food security and peak coastal change arising from erosion and qualities, although the National Trust oil make the green infrastructure sea level rise. has led studies to try to do exactly this. approach an urgent necessity. There is a potential crisis of We know for sure that our lives will Rightly the report draws attention to funding approaching for landscape be much poorer if any part of the the European Landscape Convention, designations outside the National Parks, Welsh landscape is irrevocably eroded adopted at Florence in 2000, which in particular the Areas of Outstanding or degraded. The main mind behind argues that all landscapes matter, whether Natural Beauty. Many rely to a large this report, that of the late Merfyn they are protected or not. In this respect extent on local authority core funding Williams, who died in early 2008, was the report demonstrates there is much to and administration. Yet, as a result of acutely conscious that the growing be done in Wales, especially in terms of the looming central government wealth of the developed world has to a the democratisation of land management. financial cuts, local authorities are likely large extent been accompanied by a From my own perspective within the to be forced back to their statutory depletion of our natural capital. Merfyn National Trust, there is too little mention obligations. These do not include would have seen this report as an in the report of the historic value of the financial assistance with the important legacy for Wales. Welsh landscape. All our landscapes are management and staffing of Areas of mosaics of our history. We are keen to Outstanding Natural Beauty, just a work with the Welsh Government to duty to have regard to their purposes. Dr Ruth Williams is Welsh Affairs find ways to support land management While the report presents a Manager with the National Trust.

winter 2009 | 53 politics economy international science environment education health social policy culture

2 Landscape Special

David Llewellyn describes a project that is making a Regional Park out of the Valleys Grand Canyon of th e industrial r evolut ion

The breathtaking beauty of the Brecon Beacons and Gower’s beaches have long been favourite haunts for discerning visitors, while the recent resurgence Cardiff has rightly established the capital as an increasingly popular destination. Sandwiched in-between, the Valleys of south Wales have not been viewed in the same desirable light. Yet for those prepared to stray from the beaten track, the Valleys have always had a wealth of things to offer. Cwmcarn and Afan Forest are already in the premier league of mountain bike destinations, game fishing on the Taff and its tributaries rivals the best in Britain, whilst the Valleys Walking Festival has grown Countryside overlooking Caerphilly Castle. in size and popularity year on year. rivers run clean, such that visitors are revolution, a vital part of Wales’s and Despite this, perceptions of the area often surprised by the beautiful the world’s heritage. You should walk it, have often remained negative, countryside that intertwines with Valleys bike it, and develop a tourism business dominated by images of blackened spoil towns and villages. Together with the out of it.” These words have now been heaps and waste tips. As Leighton area’s role as a cradle of the industrial backed up with over £40 million of Andrews, Deputy Minister for revolution, displayed to such good effect new funding to develop the largely Regeneration, has said, “The Valleys at the Blaenafon World Heritage site, untapped tourism potential based on have traditionally been undervalued in the Valleys' unique and fascinating blend the Valleys’ environmental and cultural terms of their natural beauty, cultural of natural and cultural heritage can assets, primarily through a mix of heritage and tourism potential.” provide an economic stimulus to help Welsh Government and European The terrible disaster at Aberfan transform their fortunes. convergence funding sources. Over precipitated much of the positive action As First Minister Rhodri Morgan thirty partners including local authorities to address the defilement of the area. once put it, “The 25 miles of the Taff across the Valleys area, government- More than 40 years later once despoiled Valley from Merthyr to Cardiff is the sponsored agencies and third-sector hillsides are mostly green again and Grand Canyon of the industrial organisations are now working as a

54 | www.iwa.org.uk Valleys Partnership to deliver the creation as well as instilling a renewed approval for Valleys Regional Park Valleys Regional Park project based sense of local pride in the environment. funding is the Ebbw Fach trail, where on a single action plan. Targeted programmes will enable local community groups, Communities First The new funding is expected to be people to become ambassadors for their partnerships and are the first in a series of environmental region, enhancing the welcome that collaborating to connect 13 local programmes designed to act as catalysts visitors receive and supporting high- projects throughout the valley, so for regenerating the area. The emphasis profile events and activities some of creating a cohesive environmental for the current funding is focused on which will form part of a Valleys and heritage trail. activities such as walking, cycling and Homecoming year in 2010. At the recent inaugural meeting of horse riding as well as more extreme The Valleys Partnership is working the Cardiff and Valleys branch of IWA, outdoor activities. Money is being with initiatives in other former coal- Professor Kevin Morgan of Cardiff invested to: mining areas such as the Regionaal University stated that through its role in Landschap Kempen in Maasland in the industrial revolution, the Valleys had • Upgrade facilities in existing Belgium and Nord Pas de Calais in helped “carbonise” the world. Indeed, in attractions such as country parks, France, which also have post industrial 1913, when the woodlands and nature reserves. landscapes and have already was at its peak in terms of both • Develop emerging centres and cultural experienced some of the same production and manpower, complete attractions. opportunities and pitfalls. A key focus combustion of the coal unearthed from • Improve the access and landscape for collaboration is working successfully the Valleys would have produced more around forests, rivers and lakes to with disengaged communities so that than 160 million tonnes of CO 2. showcase the Valleys’ unique history they can benefit from the surrounding The Valleys can now be at the and environment. countryside. Special campaigns will forefront of helping to “decarbonise” the • Create an extensive off-road network tackle fly-tipping and antisocial world. With car usage responsible for of walking trails, cycle ways and horse behaviour including arson and illegal around 15 per cent of UK CO 2 riding routes that link these attractions, off-road motorcycling which are a bane emissions, some of the new tourism historic buildings and heritage centres. to residents and deter visitors. These investment is aimed at sustainable travel. will augment initiatives such as Cleaner The aim is to create a new Valleys At the heart of these activities are the Greener Communities run by Keep Cycle Network in conjunction with Valleys communities themselves, Wales Tidy, BTCV, and the Sustrans, as well as generating a better providing additional opportunities for Groundwork Trusts. integrated public transport plan for training, skills development and job One of the first projects to obtain visitors, working with the South East Wales Transport Alliance and the South West Wales Transport Consortium. Emergence of the Valleys Regional Park will contribute in other ways to the Heads of the Valleys initiative’s ambition to create the largest Low Carbon Zone of its kind in Europe. For instance there are plans to install micro- generation and renewable technologies in more than 40,000 homes in the Heads of the Valleys area. More generally, the Valleys' landscapes and heritage provide valuable opportunities to tackle community cohesion, ill-health, education and economic inactivity.

Dr David Llewellyn is partnership co-ordinator with the Valleys

The emphasis for current Valleys Regional Park funding is Regional Park project focused on activities such as walking, cycling and horse riding. www.thevalleys.org.uk

winter 2009 | 55 politics economy international science environment education health social policy culture

3 Landscape Special Living with our a ncestors Paul Sambrook and Jenny Hall on a 25-year project to record the heritage of our uplands

The foundations of a medieval house high up in Cwm Cwareli, Brecon Beacons.

The uplands of Wales above 600 feet as it progresses. Grant aid is available During 2008, our survey of the eastern cover more than 40 per cent of our through the Commission to undertake Brecon Beacons increased the number landmass and are remarkable for the surveys in blocks, working towards of archaeological sites recorded in the survival of archaeological remains. eventual full coverage, which is expected National Monuments Record for the Since the late 1980s the Uplands to be achieved in the next five years. area from 14 to 630. The Brecon Archaeology Initiative undertaken by It is a huge piece of work by Beacons is an iconic and much- the Royal Commission on the Ancient archaeological standards, and one which cherished landscape but that does not and Historical Monuments of Wales is producing excellent results. mean that it is properly understood. is systematically surveying and One particularly rewarding aspect of The results of the 2008 survey will take recording this remarkable inheritance. the Uplands Initiative is that the data some years to digest, but this new body collected by fieldworkers, which includes of data will mean that some Each Uplands Initiative survey is a accurate site records, descriptions and reassessment is needed of the story of revelation. Invariably, after several photographs, is incorporated into the this mountain block. weeks’ fieldwork, the archaeological National Monuments Record. This is This year we are surveying the heart record of an area will have increased the national database and archive of of the Elenydd hills, a large tract of land dramatically, sometimes by over 5,000 archaeological information for Wales. which lies between the Elan Valley and per cent. Intensive ground survey, This data is made available online, via . The study area covers 63 supported by the interpretation of aerial the Commission’s own Coflein website. It square kilometres of mountain pasture, photographs by Commission staff, and is also added to the Historic Wales portal, mostly managed by the Elan Trust, the fieldworkers’ documentary research, which is managed by the Commission to much of which is a living and growing ensures that the history of our hills can bring together its information with that peat bog. Here we are trying to discover be properly recorded. held by Cadw, the National Museum and and record the evidence of human For over 20 years detailed field the Regional Archaeological Trusts, activity in a landscape which has been surveys have been undertaken of creating a one-stop-shop to search for described as “the last great wilderness successive upland areas. The surveys archaeological records. of Wales”. Four farms account for the have been carried out by a variety of During the past five years we have entire population of the area. archaeological organisations, including been involved in the Uplands Initiative In such a landscape it is still possible many from the independent sector, surveys in some fascinating areas, to get lost. Even in the 16 th Century the with the Royal Commission’s staff in including Pumlumon, Mynydd Epynt, traveller John Leland noted that Aberystwyth co-ordinating the survey Brecon Beacons and the Radnor Forest. Elenydd, then in the possession of the

56 | www.iwa.org.uk soon to be dissolved abbey of Strata management practices on the hills can sustainable future. Each of these waves Florida, was “ wilde pastures and have just as great an effect as in the of change will be the archaeology that breding grounde .” Little has changed lowlands. For example, changes in future generations will puzzle over. Like in nearly 500 years. grazing regimes and stocking rates the work of peat cutters of old, their Nevertheless, it is misleading to talk during the past century have allowed for time will pass. about our great mountains as ‘wild’ or the expansion of purple moor grass Amongst the biggest threats to our ‘natural’. One conviction which the field (Molinia caerulea ), a grass species which upland heritage is modern recreation. archaeologist will invariably come to is causing the degradation of upland Walkers, mountain bikers, horse-riders hold is that the beautiful uplands of mires and peat bogs and can make hill- and 4x4 off-roaders all have their Wales are as much a human walking a thoroughly miserable impact. The innocuous pursuit of leisure environment as the farmland which experience. Molinia masks the landscape can lead to the disassembling of ancient fills in the gaps between them. in a way that obscures and degrades cairns, disturbed to create modern There are few places you can go in archaeological earthworks. Other marker cairns. Old stone huts can be the Welsh uplands where you won’t invasive plant species such as bracken turned into barbeque sites and old encounter the handiwork of long- and gorse have a similar impact. Future earthwork banks incorporated into ad forgotten people - not even in Elenydd. human intervention will be required to hoc trails. Prehistoric communities felled and address problems created by earlier Ultimately, raising awareness of the burned the deciduous forests which human interventions. rich heritage of the mountains can help once covered the hills. This allowed for The reservoir builders of the 19 th and prevent such damage. An important the spread of blanket peat bog over 20 th Centuries have made remarkable aspect of the Upland Initiative surveys much of our uplands, locked within additions to our upland environment, is that the improved record of which is a valuable pollen record of sometimes highly contentious additions archaeological sites helps inform millennia of human interaction with the of course, but undeniably part of our management strategies which can landscape. Prehistoric cairns and nation’s story and worthy of study. The militate against avoidable damage to barrows, medieval hafods, post-medieval 20 th Century has also seen military individual sites or even entire historic shepherding huts and peat-cutters’ ranges make use of the wide open landscapes. By making its findings cottages, deserted farmsteads, quarries, spaces. In Elenydd the shrapnel of pre- publicly accessible through the internet, mines, or great expanses of old peat First World War artillery ranges can be the Commission also gives individuals cuttings also combine to leave their picked out of the moorland grass. Forest the chance to find out for themselves stamp on the landscape. plantations changed the uplands radically what it is that makes our uplands such It is evident that the impact of after the Second World War. Wind a precious heritage. human activity has continued right up farms are making their mark as we turn The endeavours of past generations to the present day. Changes in land our thoughts to climate change and a have actually created the environment we see today and count as being so very fragile and special. The archaeology of the mountain lands provides the surest proof we have that our ancestors were resourceful and often thoroughly tenacious. They endeavoured to conquer the hills and take what they needed from them. Their efforts should not go unappreciated or be misrepresented. They should certainly not be left unrecorded.

Paul Sambrook and Jenny Hall are Directors of Trysor, a small independent heritage company based in Pembrokeshire and the Amman Valley. The Royal Commission on the Ancient and Historical Monuments of Wales is online at www.rcahmw.gov.uk Coflein is online at www.coflein.gov.uk Carn Gwilym, Hyddgen: a Bronze Age cairn with a 19th century marker cairn built on it. Pumlumon is to the left and the Historic Wales portal is found at in the background. Nant y Moch reservoir is to the south http://jura.rcahms.gov.uk/NMW/start.jsp

winter 2009 | 57 politics economy international science environment education health social policy culture

Stressed, burnt and dro pping out Dave Egan argues that we need a new approach to educating our 14-19 year olds

The recent publication of the Nuffield and participation in education of our education colleges. Review of 14-19 Education and 14-19 year olds in Wales. These statistics tells us something Training in England and Wales Where do we go from here if the very significant. The dominance of provides a timely opportunity to take objectives of 14-19 reform in Wales, GCSE in schools and the lack of stock of developments in 14-19 first set out in 2001 in The Learning vocational opportunities for young education policy in Wales. It is rare Country , are to be fully realised? First, it people had led to over one-fifth of the these days, given the increasing is necessary to face up to the challenges cohort not attaining the outcomes of distinctiveness of education policy in that naturally arise in attempting to which they were capable. Quite simply, our country, to have a major report they were denied a curriculum that that looks at developments in both motivated them and helped them to England and Wales. It is even rarer in reach their potential. a document that is largely dominated From September 2010, the new by developments in England to see 14-19 Measure enacted by the Welsh Wales receiving such an extended Assembly will come into force. This will amount of coverage as it does in this statutorily broaden the curriculum in report. This can be attributed to the schools and the range of courses guidance of the lead Director of the available to young people. However, will Review, Professor Richard Pring of it genuinely break the stranglehold of University, who is that very GCSE – a style of learning patently not rare bird: an Englishman with a achieve systemic change in 14-19 suited to the needs and interest of a genuine interest and passion for education and training. Secondly, we significant number of our young people? policy developments in Wales. need a theory of action as to how such Or will it continue to dominate the change can best be brought about. educational landscape and be a direct The coverage of Wales in the report, Finally, there needs to be a clear action cause of the under-achievement pointed produced by Professor Gareth Rees of plan on how we can scale up the to in the example above? The stakes are Cardiff University - another member of policies that will be required. high. In my view it will not succeed the review directorate – is balanced and The challenges are still significant. unless the actions I point to below are insightful. There is a recognition of the One of them can be expressed through also put into place. innovative way that Wales has set about an example based on a value added A second challenge that is faced is promoting its Learning Pathways policy, rather than deficit calculation. In 2006- equally as fundamental. Why is there a the strong networking that has been 07, 71 per cent of our 19 year olds in necessity at the age of 16 (mainly undertaken at local level and in Wales achieved a level 2 qualification through GCSE), at 17 (largely via AS particular the visionary development (the equivalent of 5 or more GCSEs at level) and 18 (predominantly through A of the Welsh Bac. However, given the *A-C or in vocational awards). Of these level) to carry out national assessments energy and funding that has been young people, 49 per cent achieved the of our 16-19 year olds? Suddenly all the expended in this activity the report level by the age of 16 and this was formative approaches to assessment that raises quite properly the question of predominantly through the study of are in place in Wales through the what has actually been achieved in GCSE in schools. The 22 per cent who Foundation Phase, teacher assessment discernible outcomes, particularly. And reached this level over the next 2/3 years at ages 7, 11 and 14 and assessment for this is in a context where concerns would have done so largely through learning as a central part of learning and remain about the levels of achievement following vocational courses in further teaching pedagogy, fly out of the window.

58 | www.iwa.org.uk The cost to schools in examination education policy and making education SATS or moving the assessment burden fees alone is around £30 million a year more accessible and successful, are the somewhere else, but the use of assessment at a time when funding is at a premium. quality of our teachers and the leaders as a formative and summative tool The amount of learning and teaching of our educational institutions. Get these designed to open up opportunities to time lost to assessment is totally things right and it becomes much easier young people post 14 based on their unjustifiable. Nothing gets fatter by for the curriculum to play its part in readiness and their aptitudes. constantly weighing it. Is it any wonder achieving improved student engagement Fourthly and perhaps most that many of our young people get and success. There has been far too importantly, there needs to be a major stressed, burnt out and then drop out? little focus on these issues in 14-19 focus on the quality of teaching in the Those who survive and proceed into developments in Wales. 14-19 area. Initial teacher training, higher education often have to be An action plan needs five strands. continuous professional development weaned away from the didactic First, the Welsh Government should and the fostering of learning approaches they have become inured to look again at the Webb Report and communities across schools, further and in the previous four years to one where provide a strategic response on how to work-based education should all become independent learning and modular achieve greater collaboration. The part of this focus. The review that the assessment are the core pedagogy. This proposals in Webb are probably too Welsh Assembly Government is is high stakes assessment gone mad and complex and the Transformation currently undertaking into teacher if 14-19 reform is to truly succeed it Agenda that has been brought forward development and leadership provides has to address it. is in essence driven more by a timely opportunity to address this. The third major challenge is collaboration, an objective that has long And in a small number of areas of Wales been the aim of 14-19 reform in Wales. there are genuinely innovative approaches Generally, the record here is not a good to collaborative provision between schools one. We need learning providers to offer a single menu from which young people and further education colleges. can choose the courses they want to motivate and qualify them. Yet the vested organisational than educational and Finally, all these developments interests of many of our institutions stand governance considerations. The way should be encapsulated within the in the way of the collaboration that is forward might be to require the four School Effectiveness Framework and the needed to provide this. local authority consortia in Wales to Quality Education Framework that are There are exceptions. There has work with the further education and being currently developed by the Welsh been a genuine re-configuration by work-based learning providers in their Assembly Government. If the first Work Based Learning providers. And in area to develop strategic plans for 14-19 decade of devolution in Wales has been a small number of areas of Wales there provision based on genuine collaboration characterised by policy development and are genuinely innovative approaches to supported by a leadership and innovation, then the second could wisely collaborative provision between schools governance structure. be focused on policy consolidation and and further education colleges. In Secondly, we need a coherent offer integration. Education for our 14-19 general, however, the December 2007 that can be made to young people and year olds needs to become part of a Webb Report, which provided a that includes high quality traditional, wider holistic approach that links blueprint for genuine collaboration and applied and work-based learning modules leadership and teaching to the improved provision, has not received through the regional collaborations of curriculum. Perhaps when Wales’ next an appropriate strategic response. providers. All of this, thirdly, should be First Minister retires it will be 14-19 What then of a theory of action that framed within the Welsh Bac which reform and not the Foundation Phase could respond to these challenges? Well should also become the overarching that he or she will then point to as their it has to start with the recognition that, assessment system for 14-19, replacing proudest achievement. important though they are, the provision GCSE, AS and A level and their of an appropriate curriculum and a sane vocational equivalents in a modular based assessment system are not the really diploma system available at levels 1, 2 and Professor Dave Egan is the Director critical change agents. We know from an 3. Serious consideration could then be of Applied Education Research at increasing body of evidence from given to the possibility of a matriculation UWIC and currently undertaking a around the world that the things that qualification for young people at the age Review of eight to 14 education for really make a difference in reforming of 14. Not the return of the dreaded the Welsh Government.

winter 2009 | 59 politics economy international science environment education health social policy culture

including, in one’s words, “community, society, culture” – is mentioned. However, closer inspection of the Combating the 2004 Nexus Report on the role of higher education in Wales reveals that culture of numbers not one of the concluding recommendations for developing higher Stevie Upton advocates a broader approach to knowledge exchange education refers to its cultural or social in our universities role. This comes at the end of a report in which the cultural development of universities’ neighbouring communities In this year’s Reith Lectures, Professor income still remain within the purview is described as having “economic Michael Sandel of Harvard University of Westminster. consequences”, and sustainable argued that the current economic Central to this debate is the fact development is valued as “an important crisis signalled the end of an era of that university research is increasingly part of any national innovation system”. ‘market triumphalism’. In its place being expected to demonstrate an Thus, although there are multiple he envisaged a newfound market economic return on investment. Yet, as purposes of knowledge exchange, only scepticism that would recognise the Sandel suggests, there are good reasons one – the economy – is prioritised. moral limits of markets and question why we should question the marriage Interestingly, and importantly for their unrelenting expansion into of markets and academia. First, any critique of such a prioritisation, it previously untouched spheres. however, we should understand the is not a position shared by academics terms of the debate on knowledge engaged in knowledge exchange. From Recent press reports, however, suggest exchange in British universities. interviews conducted with British a rather different response, at least in relation to markets and higher Far from regarding the economic crisis as an opportunity education. UK Higher Education to question the reach of market forces, the UK Government Minister David Lammy, for example, is sees it as necessitating the public sector’s increased quoted in the Times Higher Education engagement with the market. as having told members of Universities UK that “we are working to help the sector further increase its economic Knowledge exchange should be academics engaged in a range of contribution”. Meanwhile, Lord considered as distinct from, albeit knowledge-sharing activities, two facts Mandelson, writing during the creation related to, research and teaching. Its stand out. In the first place, three of his new Department for Business, purpose is the sharing of research common motivating factors arise time Innovation and Skills earlier this year, outputs or teaching expertise for and again: engaging in interesting and made it clear in the Education particular ends. Questioning the enjoyable activities, enhancing personal Guardian that further and higher definition of those ends as or institutional kudos, and making a education together constitute “an predominantly economic is not the difference to others. A second common integral part of a sustained recovery”. same as suggesting that ‘pure’ or ‘blue refrain, expressed even by academics These statements are telling. Far skies’ research cannot take place. engaged in potentially lucrative from regarding the economic crisis as It is fair to suggest that the activities, is that while money is an opportunity to question the reach of Government, in Cardiff Bay as well as important, it is as a facilitator of market forces, the UK Government in Westminster, is prioritising the knowledge exchange rather than a sees it as necessitating the public economic benefits of university research motivating factor for it. sector’s increased engagement with the over its social or cultural values. In This mismatch between government market. Devolution notwithstanding, reading the Assembly Government’s and academic motivations matters in they are statements that should give us policy on knowledge exchange, and in three key respects. Firstly it should matter pause for thought in Wales. They will talking to civil servants with to the Government. Secondly it matters impact on higher education here responsibility for implementing it, it is to academia. And thirdly it should be of because the Research Councils from true that a range of spheres for the concern for society as a whole. where it receives a significant part of its conduct of knowledge exchange – It should matter to the Assembly

60 | www.iwa.org.uk Government because a lack of knowledge exchange are allocated to on the economic value of research is a alignment between policy drivers for universities based on metrics that red herring that will not only preclude knowledge exchange and the largely favour income-generating pursuit of other goals but will also stifle motivations of academics makes it less activity. The result is that academics the very income-generating activity that likely that policy will achieve its desired engaged in wealth-generating it aims to promote. If the Assembly ends, economic or otherwise. There is knowledge exchange tend to be commits to supporting engagement of good reason to believe that economic provided with more space to engage every possible kind by academics, then ends can also be achieved by pursuing than are those engaged in other forms the rest – economic contributions other, non-economic, goals. Indeed, of exchange. At best, this will mean included – will surely follow. Only with some of these might tally better with that some academics will engage in this long-term commitment to valuing academic motivations. In addition to knowledge exchange under constrained academic outputs, replacing a short- encouraging academics to develop their circumstances, potentially affecting its term focus on exploiting research for non-economic impacts, there is quality. At worst, academics will fail to immediate gain, will Wales be fully therefore a strong argument to be made see the incentive to engage. able to capitalise on its talent. that refocusing policy on facilitating All of this matters enormously to For their part, universities hold a impact, regardless of type, would be society. To understand why, we must position of power that could also help likely to increase economic impact. turn to the work of Amartya Sen, winner to promote a broader knowledge Universities should also be of a Nobel Prize in Economics and exchange. In a time of budgetary concerned about a bias in favour of proponent of the view that a well- constraints it is tempting to jump income-generating knowledge functioning economy is an important through the hoops that lead to new exchange. Academic activity can be but, crucially, not a sufficient condition funding sources, but universities will imagined as a series of overlapping for a developed society. Sen argues that need to resist the temptation to view activities (as seen in the diagram), development is about creating suitable knowledge exchange as a bean-counting which sit within a single bounded conditions for the living of lives that we exercise. Instead, Vice Chancellors space. This space can be understood have reason to value. And what we should be using their institutional as the total resources – including time, value, he says, is not only economic autonomy to encourage academics to money and other support – available prosperity. In total he acknowledges seek the broadest possible range of to an academic. Given that these five ‘instrumental freedoms’, including impacts, whilst also lobbying resources are limited, an increase in political freedoms and social Government and working with the the amount of a resource such as time opportunities, each of which is important Higher Education Funding Council to allocated to one task reduces the in its own right as a goal, and an find an alternative to the existing amount available for other tasks. indicator, of development. Together they narrow metrics . are also mutually reinforcing, such that Nevertheless a deeply ingrained Spaces of academic activity developing one freedom can lead to ‘culture of numbers’, which holds that developments in another. numerical measures are somehow more Academia has a contribution to ‘factual’ than qualitative indicators of make in all of these realms. To focus in value, continues to militate against this. isolation on the economic impact of Our universities and our Government universities is therefore not only to will therefore need to be bold in asserting misunderstand the nature of development alternative values. Now is the time for – viewing it as a trickle-down process of our universities to face the challenge of social benefits emanating from economic creating an environment that fosters these growth – but also to overlook the full values of the academic community. richness of academia’s potential Unless they do so, in an era of global contribution to society. competition we will face losing talented In commissioning the Jones Review academics and students from the Welsh of Higher Education in Wales, our higher education system, and will fail to Government has shown itself to be achieve the enhanced wellbeing of open to a new vision for our citizens that should be our ultimate goal. Unless space is made for knowledge universities. Only time will tell whether exchange, it is therefore liable to be it has the confidence and foresight to squeezed out by the remaining develop a radically different policy from Dr Stevie Upton is Research Officer activities. At present, resources for that of the UK Government. Focusing with the IWA.

winter 2009 | 61 politics economy international science environment education health social policy culture Lifesty le epid emi c Dyfed Wyn Huws warns that public health could continue to lose out in the Welsh Government’s newly reorganised NHS

Out of the ashes of the long-awaited abysmal? In any developed country We live in a divided society where the bonfire of the internal market of the there is a gradient of worsening health, difference between rich and poor is nine Welsh NHS Trusts and 22 Local higher mortality and lower life among the widest in Europe. This has Health Boards, this October the expectancy across socio-economic not improved since 1999. Health has Minister created the phoenix of seven groups, moving from the most affluent therefore worsened. For example, by new Local Health Boards, including to the worse-off. The effect is worse 2005, the gap in male average life Powys which survives only by being for all , but particularly the poor, the expectancy at birth for the two local combined with the local authority. But more uneven the spread of income authority areas in Wales with the wait, still glowing in the embers with and wealth in society (see figure 1 ). highest and lowest had widened to 4.2 a failing, flashing blue flame, is the A combination of circumstances, years. Measures of teenage health in Welsh Ambulance NHS Trust, as is including poor economic conditions, Wales are amongst the worst in all of the anomalous Velindre NHS Trust. urban environments, smoking and Europe - see Box 1 and Figure 2 . They are all that is left of a previous alcohol intake greatly affect health, So, why has the National Public decade’s attempt to instil market from before birth through to childhood Health Service for Wales failed to values into the NHS. and beyond into adulthood. This is effectively address our worsening especially the case with cardiovascular national health? Statutory public health functions now lie disease, diabetes, and some cancers. Between 1974 and 1988 the clear line with the seven Local Health Boards and Wales has high levels of poverty of responsibility for the health of the 22 local authorities. However, these local compared with elsewhere in western people was lost. The 1988 Acheson bodies have almost no specialist public Europe. Our GVA per head is Report established the executive health resources for the job. Such as they declining relative to the UK average. Director of Public Heath on the board are these lie with the new Public Health Wales NHS Trust. It has no statutory Figure 1: Correlation between income inequality and the Unicef public health functions, while its inherited index of child wellbeing in 23 rich countries senior professionals are inadequate in number and thinly dispersed locally. Moreover, its relationship with the new Health Boards is uncertain. This is a missed opportunity because our increasingly hi-tech hospital-based NHS groans ever louder under a growing epidemic of preventable public health problems. In Wales we continue to have one of the worst incidences of health problems relative to the rest of western Europe. This is despite us having our own National Public Health Service for the last six years. So why is our public health so

62 | www.iwa.org.uk Box 1: of health authorities, responsible for protecting and promoting the health The health of adolescents in Wales of the people. However, with the dissolution of Welsh health authorities • Fewer eleven year-olds in Wales consume daily fruit than in 10 other EU states. in 2003 this position was again lost, and with it the clear executive responsibility • A quarter of 11 year-olds in Wales drink sugary drinks daily – higher than for the health of the people. Scotland and England. Less than 10 per cent do so in Iceland, Norway, Instead, 22 small Local Health Denmark and Sweden. Boards and the National Public Health Service were established. The latter • By age 15 only 9 per cent of girls and 21 per cent of boys in Wales report one hour or more of daily moderate-to-vigorous physical activity. had no board. Even though the Welsh Government set it up to ‘deliver local • A quarter of 15 year-olds in Wales watch two or more hours of television services’, with the Local Health Boards each weekday – higher than other UK countries and most of wider Europe. and others, its own unpublished internal review later showed that its • Wales, like Scotland, shows a high level of 15 year-olds who start smoking at 13 main stakeholders - local government, years or younger. More girls smoke (34 per cent) than boys (26 per cent). Only central and eastern European countries tend to be worse. We’re as bad NHS Trusts and Local Health Boards - for frequent smoking: 12 per cent of 13 year-old girls and 6 per cent of boys were dissatisfied with what its senior smoke at least weekly – the second highest in the EU. management had provided. As now, it was local government • About 40 per cent of 15 year-olds in Wales drink weekly – unusually similar and the 22 Local Health Boards that for both genders, the third highest percentage in wider Europe and North held the statutory public health duties Amercia, worse than other UK countries, and a problem across all and powers from 2003. None lay with socioeconomic groups. NHS Trusts and almost none • Over a quarter of 13 year-old boys and girls in Wales have been drunk at least nationally. Almost all public health twice – a higher proportion than almost all other European countries and North professionals, including Local Public America. Wales has one of the highest levels of 15 year-olds who report first Health Directors of the old Local drunkenness at age 13 years. Health Boards, were appointed, employed and managed by the non- • In Wales, 41 per cent of 15 year-old girls say they’ve had sexual intercourse, statutory National Public Health and 30 per cent of boys. For girls this is the highest percentage of all wider Europe and North America, apart from Greenland. Condom use is low Service. Its management failed to compared to these countries, too. deliver properly qualified and properly recruited public health consultants to • A higher proportion of 11 year-olds in Wales rate their health as only fair or all the 22 Local Health Boards, even poor compared to all EU countries. though their main function was to deliver local services. • 13 year-olds in Wales have one of the lowest levels of self-rated life satisfaction in the developed world, especially for girls. Where there were consultants their part-time Local Health Board role • Wales is second only to Malta in the European league table, with 18 per cent was not supported centrally. Caught of 15 year-old girls and 21 per cent of boys overweight or obese – worse than between a rock and a hard place, Scotland and England. they had all the responsibility but no executive authority, no core funding, • Pedestrian road traffic collisions in under 16 year-olds are considerably more common in deprived areas than in affluent areas in Wales. They are one of no senior staff, and mixed and unclear the main causes of death in this age group after infancy. accountabilities. Considering the Local Health Boards’ and local authorities’ Source: WHO Health Behaviour in School-aged Children Survey 2005-6. statutory public health duties this was a dangerous mix for them and for the public, in terms of preventing and tackling infectious disease outbreaks. As for improving health locally it was

winter 2009 | 63 politics economy international science environment education health social policy culture

The Welsh NHS - the new map.

new publications

Will Britain Survive Beyond 2020? £11.99 ISBN 978 1 904773 43 6

How should Unionists of all political stripes respond to devolution and its many challenges? Should Conservatives embrace and enhance nationalism in the Home Nations of Britain? David Melding, Conservative AM for South Wales Central, argues for a federal solution, a recognition of the sovereignties of each Home Nation, but also a continuing role for the wider British state. Confronting the question ‘Have we been anti-Welsh?’ he says Conservatives should be more confident in embracing their Welsh political identity.

Regional Economies in a Globalising World Edited by John Osmond £10.00 ISBN 978 1 904773 45 0

In this book economists and economic geographers working in contrasting regional economies around the world reflect on their experience of analysing new approaches to economic development in the context of globalisation. What has worked in their context and what has disappointed ? What policy exchange can be realistically attempted? How best can regional economies engage with the forces of globalisation? What lessons can Wales learn from the experiences of regional economies as far apart as Europe, the Middle East, the Far East and North America? Figure 2 : Wales tops the European NHS consultation proposed that The seven new Local Health Boards league for teenage drinking Directors of Public Health would that came into being in October 2009 be re-established, this time based within the seven new Local Health Boards. Is there a chance, therefore, that we can now look forward to a world class national public health service together with strong, independent but accountable public health leadership and advocacy from the seven new Directors of Public Health? Certainly, our poor standards of public health, and often shocking lifestyles, especially among the young, demonstrate a crying need. However, as the new Public Health Wales NHS Trust emerges into view, there seems to be a mystery spectre rather than a phoenix at work. Despite its failures, in October 2009 considered. Surely the focus has to be the old National Public Health Service on improving the public’s health simply became the de facto major through partnership between the local component of the new Public Health NHS, local government, other sectors Wales. The new organisation has a and communities, with local strong new chair, board and chief executive. credible independent executive public However, its interim management team health leadership and advocacy. is mainly made up of the senior We must hope that sometime in the management of the old National Public future these complex requirements may Health Service. Failure to appoint a be better clarified and enshrined in new team will result in a status quo in Welsh primary public health legislation, terms of better health for Wales. via a Legisative Competence Order, a Unless there is a clean sweep it is Wales-only Westminster Act, or better difficult to see how the much needed still by a fully-fledged Welsh culture of excellence and Parliament. This would supercede professionalism can develop. A few current 19th Century public health law, decades ago Wales’ public health and set out clearer principles for service was world famous, but we have protecting and improving the Welsh Source: WHO Health Behaviour in School-aged a poor reputation now. Recruitment public’s health. The ambiguous Children Survey 2005-6 needs to ensure that we get the best organisation of public health duties still people possible for all the new posts. needs clarifying in 21 st Century Wales. The balance between strong local completely non-functioning. public health and responsive central As a result of these structural support also needs sorting out. More of problems, and due to an added the same won’t do for Wales. ingrained culture of nepotism, there is Public health was rightly trumpeted little wonder that a significant number in the One Wales coalition agreement Dr Dyfed Wyn Huws is an Honorary of our scarce senior public health following the 2007 Assembly election. Research Fellow with the Department of professionals left the National Public However, we are in danger of repeating Primary Care and Public Health at Health Service, most of them leaving the mistakes of the last six years. Cardiff University and a freelance Wales altogether. Consequently, it came Indeed, the functions that are required consultant specialist in international as a relief when last autumn’s second locally are still to be properly public health.

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Beating the crunch Katija Dew describes how a Welsh financial movement is benefiting from the credit crunch

This year the Llandudno Credit up with the service they’ve been getting £1.75 million since 2,000 and promised Union, one of the largest in Wales, from the high street banks.” a further £1.75 million under the terms has become the first to launch a There are now 29 credit unions in of the One Wales coalition agreement debit card, allowing members to Wales, owned and run by their 49,000 between Labour and Plaid Cymru. A pay for goods in shops and use cash members, 7,200 of whom are children. defining moment for the movement was machines. Supported by a £187,000 They are mainly run by some 825 reached in October 2008 when all-Wales grant from the Assembly volunteers, but they also employ 75 full coverage was achieved when the Gateway Government, the new service has and part-time staff across Wales. Credit Credit Union extended its common bond been set up with the help of the area to include . Co-operative Bank which handles The benefit of a wide geographic the technical side of issuing the remit has brought the commitment of debit cards and the electronic other stakeholders with value added account management. schemes that have been negotiated and delivered. For example, Powys County Although the new service is aimed Council supports a Home Improvement primarily at the eight per cent of the Scheme, whereby a free building survey Welsh population over 16 who don’t and energy savings advice are given have a bank account, there has been a alongside the credit and financial services surge of interest in credit unions since of the Partnership. Co-operation extends the collapse of the Northern Rock beyond these three organisations to other building society. The Llandudno Credit credit unions in the area, advice services, Union, which covers the Conwy area, the voluntary sector and social enterprises has seen its membership grow to 3,000 to name but a few. in the past year. Another innovation has been the “We noticed after the collapse of Robert Owen Montgomeryshire Credit Northern Rock that people were joining Union’s partnership with a Community and depositing larger amounts of cash,” Katija Dew is National Financial Inclusion Development Finance Institution to serve said the Llandudno union’s manager Champion for Wales, based at the Wales the financial needs of both individuals Co-operative Centre in Cardiff Barry Roberts. “Members felt we were and small businesses in Powys. The one institution they could trust. The fact Partnership is able to deliver a range of that all profit generated by the credit unions hold more than £16.5 million services to the area in ways that would union is returned to members or of individuals’ savings and have £40.7 not be possible if the two organisations reinvested to improve services makes a million out on loan to their membership. involved were working on their own. refreshing change in the current climate The trend has been one of steady Credit Unions, limited by their common which awards huge bonuses to senior growth since the first union, St bond area and regulation around lending staff of banks and other financial Therese’s in Swansea, was registered in to only individuals can provide the institutions. We have been attracting new 1980. The period 2001-2004 saw a facilities that Community Development members from all walks of life. Obviously threefold increase in membership which Finance institutions cannot. there are people who are on low incomes coincided with significant investment The main challenge facing the who tell us they have found it difficult to by the Welsh Government and the Credit Union movement is reaching open a normal bank account. But there European Social Fund. those people on low incomes who often are also people who are just generally fed The Welsh Government has invested have limited knowledge, understanding

66 | www.iwa.org.uk Barry Roberts, Llandudno Credit Union’s manager, pictured with Social Justice Minister Brian Gibbons at the launch of the Union’s new debit card earlier this year. or confidence in how to manage their inclusion and tackle over-indebtedness by benefits and support to which they are money. However, for such people actions in five key areas: entitled, especially housing and council credit unions offer a vital alternative to • Access to mainstream financial services; tax benefits and the help available with doorstep lenders, often referred to as • Affordable credit and savings; fuel costs. ‘loan sharks’. For instance, a typical • Access to money and debt advice; Making financial inclusion a reality ‘doorstep’ loan of £200 over 31 weeks • Helping people to improve their is a strategic challenge and one that would result in a £110 interest charge, financial skills; and can only be achieved by engaging compared with a £15 11p credit union • Helping people maximise their income. with the culture of mainstream interest charge (at just 2 per cent). A organisations. Local Authorities are doorstep loan of £500 over 55 weeks The strategy outlines support for post well placed to influence the plethora of would cost £325 in interest, compared offices and credit unions to develop organisations that have contact with with £67.25p credit union interest. new and sustainable services including those that need support, as do social Moreover, borrowers from credit affordable and accessible financial landlords, Health Trusts and others in unions first have to be investors, however products. It also highlights how the the public sector. small the amounts, so they have become Financial Inclusion Champions team A good place to start is some used to making regular payments and for Wales, appointed in October 2008, critical thinking about what financial developing a savings habit. State benefits is working to increase awareness and exclusion means to the organisation, can be paid directly into members’ share take-up of suitable bank accounts and how the issues affect service users accounts, and can be withdrawn, saved, third sector lenders as an alternative to and as a natural follow on how this or used to repay a credit union loan. loan sharks. impacts on their own objectives. The credit crunch is providing the The strategy also aims to improve Mainstreaming activity that tackles backcloth for a new initiative to tackle knowledge, skills and understanding of such exclusion with seamless debt and financial exclusion, ‘Taking financial products and services through progression to the services that Everyone Into Account’, which was financial education in schools and more partners provide should not be seen launched for consultation in February widely in partnership with the Financial as an unattainable nirvana. It is 2009. The strategy sets out how the Services Authority. Maximising income achievable if all stakeholders can instil Assembly Government will work with is a key feature of the strategy, for the culture, trust and innovative other organisations to promote financial instance ensuring that people claim the thinking that is required by all.

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cent – service providers often find it The Ka fka Br iga de more challenging to respond effectively to people with more complex needs. People who require specific support comes to Wales from a range of different agencies, or Andrew Davies describes an innovative approach who don’t fit in with ‘expected patterns’, can often be frustrated by the very rules, to improving public services regulations and targets intended to improve services. So when I discovered In novels such as The Castle Franz the Netherlands and Belgium. that the Kafka Brigade have been Kafka brilliantly described the In the Netherlands the Kafka employed by numerous public bodies in problems of modern bureaucracies. Brigade is called into action when the Netherlands and elsewhere to tackle In their hierarchical structures, citizens and public servants become red tape on behalf of their citizens, I impenetrability and general lack of tangled in a web of dysfunctional rules, was keen to see if this method would transparency they tend to create an regulations and procedures. It is an work for us in Wales. experience of isolation for those within independent, non-profit action research Over the past year, I have therefore as well as outside their systems. team that assesses red tape from a sponsored the Kafka Brigade to work in citizen’s perspective. The Brigade’s partnership with Local Service Boards By their very nature bureaucracies unique research method allows it to in three areas. In Bridgend, the team is contribute to the gap between policy quickly diagnose and remedy the key focused on the services provided for and practice which, as Minister for problems standing in the way of top young people with disabilities. In Finance and Public Service Delivery, quality service. To determine where Cardiff and Swansea, it is examining it is my overwhelming priority to close. and why a bureaucracy had broken the services available for young people Consequently, when in December 2007 down, the Kafka Brigade puts itself in Not in Employment, Education, or I met with Jorrit de Jong, a Dutch the shoes of the people whom it serves. Training (the so-called ‘NEETs’). academic, social entrepreneur, and Whilst public services can be highly In addition to these pilot projects, senior member of the Kafka Brigade , effective at meeting most people’s Local Service I was struck by the similarity between needs – as confirmed by our own Board has chosen to apply the Kafka the challenges we face in improving Living in Wales survey where citizens’ method to assist in improving services public services in Wales, and those in satisfaction averaged around 86 per for victims of domestic violence, funded by the Home Office and facilitated by Rhondda Cynon Taf’s Kafka Brigade. the Assembly Government. So what does a Kafka project look like? On the surface, the approach is deceptively simple, applying a common sense approach. The Brigade aims to tackle red tape and service complexity from the user or citizen’s perspective – while treating public servants as part of the solution. Firstly, there is the need to understand the failure points in the system. The people who usually know how the system works and the likely solutions are of course service users themselves, working together with front- line practitioners. The team uses extensive data to create a profile of the typical service user. It then gathers

68 | www.iwa.org.uk experiences based on their use of public sponsoring Minister, I have participated The Kafka Method will be services, providing a clear picture of a in a number of these meetings, and can evaluated later this year. It is, of course, typical user’s experience of local services. testify to the power of this approach one tool of service improvement The team will then interview and the benefits that can accrue from amongst many. It complements others front-line staff, to confirm the this open and collaborative approach. such as the application of ‘lean systems’ representativeness of emerging issues All of the Welsh Kafka projects are thinking to service improvement and and to delve deeper into their currently in the process of delivering other forms of innovation, which are underlying causes. In this way, a shared improvements. I know that some are being used to great effect in other parts understanding of key problems begins to finding the work tough, as many of of the Welsh public service. emerge. Thirdly, and I think uniquely, these improvements involve significant Wales is the first administration in the Kafka Brigade brings together change to existing approaches. The the UK to apply the Kafka method everyone in the public service system - Assembly Government is providing and, through our pilots, we have including the service user - needed to leadership and support through regular contributed to its development. If it fix the problems they have identified. stocktake meetings, aimed at removing proves to be as powerful as its These include representatives from obstacles and freeing logjams. potential suggests, I for one will be the service users, front-line staff, It is hard work, but the complexity happy to see the Kafka Method senior executives from relevant bodies of multi-agency delivery is only exported across the UK, with another (public, private or third sector), and matched by the opportunities it creates. ‘Made in Wales’ stamp attached. political leaders. Together, they identify I am confident that by really listening and acknowledge the shortcomings of to service users and to staff in the way Andrew Davies is Minister for current provision, and crucially commit they have, these projects will make real Finance and Public Service Delivery to specific action to improve it. As the changes to the lives of people in Wales. in the Welsh Assembly Government politics economy international science environment education health social policy culture

Capturing the soul Peter Finch sits for Wales’s most successful portrait painter David Griffths

Received wisdom puts Cardiff’s manufacturer of dragon tote bags, smoking a Woodbine. The book was a creative focal point somewhere in publisher of translations, guides to Welsh great success. mid-Pontcanna, where Chapter teas and books of verse. I was the shaky David’s studio is out back. It was nudges up against Kings Road. It’s young poet on the verge of his first real once a coach house and later a garage, either there or the Bay amid the publication, The End of the Vision . John full of oily cans, old sacks, and broken creative hubs of Mount Stuart Idris stood relaxed in the lounge with a machinery. Amid the dusty detritus Square and the production rooms of girl on his arm, one he later picked up David established his creative space. the Millennium Centre. The east of and turned upside down, just to show he Painters need light and constancy. the city rarely gets a mention. But could do it, her skirt falling to her waist, Flickering change, the moving sun, the not everything is on the surface . passing cloud, these makers of shadow are all enemies. David did what he You wouldn’t know the house on could to minimise them. He put in Westville Road in Penylan was there heaters, knocked through walls, added unless you were looking. It’s an unobtrusive roof lights. “People don’t unassuming terrace, built in 1909 on know this place is here and I like that,” former land. Hard red brick, he told me. bathstone bays, slate roof - all in He was brought up speaking ragged generous Edwardian proportion. David Welsh in Pwllheli. At school he had Latin Griffiths lives here. How many David crammed into him and didn’t enjoy the Peter finch at the new Waterloo Teahouse in Griffiths are there in Wales? But this is Penylan, Cardiff, standing beside his own portrait experience. It made him feel that neither David Wyn Griffiths, portrait painter. by David Wyn Griffiths. of these two great languages had a future. He’s a man I first met in 1971 when he Smiles. Now he freely admits that he got turned up at the Duffryn Close home of revealing her knickers. David Griffiths that wrong. At fifteen, heading for a John Idris Jones, my publisher. arrived with a camera and took several parent-driven and uninspiring career in Cardiff Ltd., a 1970s moody shots of me sitting on the sofa law he did an about turn and went to the Slade. David is telling me this as I sit, him sketching, breaking off to take the occasional reference photograph, or for us to have tea. There’s loads of tea. In his studio the subject sits before a carefully placed mirror and watches the artist as he works. The face has always drawn me, says David. He’d decided to try making a living from his work while employed as a teacher in . He’d placed an advert in the local press, commissions undertaken , and, amazingly, got one to do a portrait of the headmaster. What he produced was liked and, as a bonus, he was also paid. Everything fell into place after that. Back in Pwllheli he’d visited the art David Wyn Griffiths, pictured at home surrounded by his reject paintings: “They’re all burnable.” gallery at Plas Glyn-y-Weddw, just

70 | www.iwa.org.uk author Bernice, with her violin, , Charles. “They’ve all been here,” says David. “Trekked up to Westville - Sir Geraint Evans, Peter Prendergast, Archbishop Barry Morgan, Sir Kyffin Williams. But not Charles. I went to him”. In terms of portraiture David is Wales’s most successful painter. Painting Charles, the Prince, first at the time of the Investiture and then again thirty- three years later, made him. As artists go David is no bohemian. He plays piano. Bach and Mozart. Works from eleven until the light goes. Does Landscapes as an escape. He painted the 80-year old Rev Canon Bartle Jenkins, late of the home for retired clergy at the end of Church Terrace, simply because he had a kind face. The home was built in the 1870s as a home for fallen girls; next door was a home for fallen women. The Canon’s portrait sits at my feet, white surpliced, green stole, and glasses. I’d see him in the Gardens that occupy Canon Bartle Jenkins – painted simply because he had a kind face. one side of Westville Road. I’d nod a good morning as he crossed the end of down the coast at Llanbedrog. At the spend more of his time painting and less my street. There is something extremely turn of the century this 1856 Dower in management. satisfying about art recognising where house had been developed by Cardiff’s Both enterprises thrived. The Albany you are, the wellspring of place. In Solomon Andrews as a sort of Gallery showed many of the Welsh David’s portraits an image of the soul is entertainment centre offering dancing, greats, including Kyffin Williams. captured. The faces watch you, half food and art. One of Andrews’ horse- Meanwhile, David painted what seems smiling, and staring into an ever-present drawn trams ran along the sand like half the great and the good of the present. The painter Will Roberts is back to the town, much in the style of western world. Back at the house on shown sketching the face of David those that connected Splott with Westville and around the walls of the Griffiths as Griffiths himself paints Grangetown in Cardiff. Andrews would studio hang distinctive almost pointillist Roberts. The images circle. visit Christies in London at the end of portraits of George Melly, Enoch Powell, At the new Waterloo Tea House in auction and buy up any unsold pseudo Kyffin Williams, George Thomas, Bryn Penylan chief brewer Kasim Ali makes great masters that remained. These he’d Terfel and James Callaghan . steam. The portrait David has painted use to cover the walls at Plas Glyn-y- The faces are meshed up from a net of me hangs on the wall, as though Weddw. People buy anything when they of colour. “These are largely rejects,” east Cardiffians are sticking together. are far from home. His investment David tells me. “I have many rejects. I take Darjeeling, with milk. It’s not all provided a steady return. I stack them upstairs. They’re all yours, Pontcanna. In the early 1960s David met burnable”. He makes five or six versions businesswoman and direct descendant of for each work, each sequentially Peter Finch is Chief Executive of the Solomon Andrews, Mary Yapp. In 1965 correcting something - a misplacement Academi. An earlier version of this they opened the David Griffiths Gallery of hands, a failure of detail around the essay, David Griffiths and the Creative in Albany Road, Cardiff. Griffiths eyes. The final finished piece goes to the East , appears in his new psycho- provided creative zip, and Yapp the buyer. The earlier preliminaries stay geography of the capital, Real Cardiff – business head. The Gallery became the here. I turn my head to gaze at Joe The Changing City , now available Albany in 1967 when David decided to Calzaghe, Beryl Rubens, the sister of the from Seren at £9.99.

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The Galeri in Caernarfon: “Everyone walking through the building can see the arts creating wealth and work within the community.”

Meic Llewellyn profiles a Welsh cultural entrepreneur

A new presence in the creative landscape

“It’s the process of creative moved on to the Guildhall School of first-ever post graduate course in Music collaboration, watching people gain Music and Drama for three years, and Therapy to be held in Wales, and then confidence in their own ideas, and then embarked on a career in opera. A for five years combined therapeutic sharing them with others, that I high point was performing Juliet in a work with her continuing career as a really enjoy,” says Elen ap Robert, new production of The Little Sweep professional singer, and her role as Director of the Galeri in Caernarfon by Benjamin Britten as a part of the mother of three children. and an opera singer and music Alderbugh Festival. Subsequently, she In those days the dominant therapist. “That sense of new joined the chorus at Glyndebourne, impression of music therapy as ‘an possibilities being explored, visions preparing for and understudying major add-on’, combined with the politics coming into clear focus and suddenly roles, in particular in Mozart's operas. surrounding its provision, was emerging as practical possibilities.” In between Elen made time not only to frustrating. However, the thrill of begin a family but also to join Yehudi making a connection with isolated Menuhin's prestigious scheme for individuals through music, along with Completing a music degree at Sheffield young musicians, ‘Live Music Now!’ a contribution to the well-being of University, Elen had already come to There, another thread began to be others, was deeply satisfying. realise that she just wasn't interested in woven into her professional life. As voice tutor at the newly describing and analysing culture, she Working with children with special established Williams Mathias Music wanted to live it. Already a singer, and needs, and seeing how the most Centre in Caernarfon, Elen became someone who since her childhood in disturbed and autistic children benefitted aware of the intention of Cwmni Tref south Wales had performed with the from exposure to music, Elen began to Caernarfon, a community enterprise in Urdd Theatre Company and dreamed take an interest in music therapy. Back that town, to develop a new creative of becoming a professional singer, she home in Cardiff, she took part in the enterpise centre in Victoria Dock,

72 | www.iwa.org.uk Caernarfon. Cwmni Tref had built up Galeri’s atmosphere reflects that. We do citizens has always been close. Children capital as well as credibility developing have events in English, but the emphasis from local primary schools and schools buildings in the town, and were is on Welsh medium cultural activity”. for children with special needs helped planning an entirely new type of There is particular emphasis, too, not only with decoration but with cultural centre in Victoria Dock on the on being relevant to the local design, and the processes of creating a old town's waterfront. The idea was community. Elen joined the staff in programme and developing an audience to create a venue that could offer May 2004 while Galeri was still a have always been collaborative. resources to small creative-industries building site. Well before it opened to The upper floors are largely given organisations as well as being a magnet the public in March 2005, she and her over to state-of-the-art offices for for local talent and visiting companies. colleagues were working closely with between twelve and fifteen creative- As 85 per cent of the region's organisations in the area to ensure it industries companies, all of which work population is Welsh-speaking, it was was, from day one, the shared property through the medium of Welsh. Music, entirely natural to work entirely through of everyone in the community. dance and television are particularly that language. Caernarfon is an economically well represented. As Elen says, “Language balance is inevitably disadvantaged town, with Peblig ward “Everyone walking through the building an issue in Newtown or Cardiff,” one of the Welsh Government’s can see the arts creating wealth and commented Elen. “But here life is lived designated 'Communities First' areas. work within the community.” The cafe through Welsh, and our work and the Galeri's relationship with its neediest and bar have become popular meeting places, whether for professionals holding informal meetings, or mothers and babies, families and friends, simply chatting and staring out over the water. Since the initiative grew out of the work of their own development trust, and residents have contributed to its development over the past five years, Galeri's continuing success has added to the community's positive self-image, and its confidence in culture as an engine for development. Nowadays Caernarfon is the communications capital of north Wales, the Cardiff of the north. “It's like a tapestry or a web,” Elen suggests. “It's community-based inside and out, it's highly professional and in some ways slick and quite glitzy. It's technically well resourced and at the same time human and very touchy-feely.” The companies Galeri hosts meet formally with the Galeri team once every four months, but collaborations take place on a day-to-day and hour- to-hour level too. “Not every company is highly interactive,” Elen says, “but in their different ways they all find opportunities to co-operate, and there are certainly enormous benefits from working together.” As Artistic Director, Elen's work rarely moves out of sight of demanding, often daunting, financial imperatives, but she feels that material considerations are always in a creative

Elen ap Robert: “It’s the process of creative collaboration, watching people gain confidence in their own ideas, and sharing them with others, that I really enjoy.” winter 2009 | 73 politics economy international science environment education health social policy culture

dialectic with the human. “We very Elen rarely performs these days, but Galeri’s location has made sure that rarely just buy shows in,” she said. finds rewards instead in the adrenalin it is the natural focus for audiences “Building a relationship with companies buzz from pushing productions and and creative organisations throughout and likeminded creative people is collaborations forward. Balancing the western Gwynedd, Anglesey and Pen always the crucial thing.” demands of work and family means Llyn. It also sees itself as a national It's rare for companies to perform the unexpected is lying in wait around creative centre. There have been new without being drawn into workshops every corner. Trying to secure her partnerships with Wales-based and discussions. Galeri's close relations programmes' financial sustainability - companies of late, wishing to make with schools, the Communities First balancing earned income and grant Galeri their performance space in the partnership and other groups in the support with high overheads - is an ever- north of Wales. Moreover, its new five- neighbourhood ensure that there is present headache. To some extent this year strategic partnership with the rarely a shortage of participants. challenge is helped by the organisation’s Wales Millennium Centre in Cardiff “Children can often be your most open-ended commitment to core funding exemplifies the centre’s growing perceptive critics,” she comments, Galeri’s art programmes by cross influence, and its presence in the “especially as we've tried from the subsidies from property rental income. emergent creative landscape in Wales. beginning to ensure that activities always Galeri's relationship with Gwynedd challenge as well as respect them.” Council has not always been easy. The At the same time as providing a council did not always see the centre's Meic Llewellyn is Strategic space in which much local talent is emergence as part of its strategic plans, Development Officer for North Wales, developed and refined, Elen feels that and at times found it hard to react Voluntary Arts Wales. This article is by insisting on excellence the centre is positively to a powerful neighbour that drawn from the recent volume he edited able to play a more creative role than might make costly demands. In recent Bwrlw m/Fiuchadh Foin n/Beir m/ if their approach was less critical and times, however, Elen has been able to Ferment , a quadri-lingual publication incisive. While agreeing that too often see the growth of collaborations and highlighting the work of Celtic the native has been the gradual development, at all levels, Neighbours, a partnership between allowed to remain invisible and of better mutual understanding. agencies in the Irish Gaeltacht, the unrewarded, she is an advocate of 'hard “Dialogue and creativity are our most Scottish Hebrides and Y Fro Gymraeg. love'. Refusing to compromise on powerful tools” she insists. “Some of It seeks to strengthen cultural activities quality, she believes that Galeri can our biggest problems can be in the three native languages through help native performers raise their transcended through creativity, if shared productions, cross-border touring ambitions and widen their horizons. people are prepared to talk.” and skill-sharing. See www.vaw.org.uk new publications

Living with Critical Mass: our Landscape The Impact and Future of £9.99 Female Representation in the National Assembly for Wales The result of two years £7.50 of investigation in association with the The National Assembly has been Countryside Council lauded for achieving near parity for Wales this study in women’s representation during the examines the future of first three terms, including the protected landscapes in Wales. The current global membership of the Cabinet. However, convergence of the carbon crisis and credit crunch demonstrates this looks destined to fall dramatically the inextricable link between environmental, economic and social following the May 2011 election. This well being and the need to develop integrated solutions. In report examines how equality has particular can our National Parks develop an enhanced economic been achieved, why the parties are and social role in addition to their essential conservation function? watering down positive action, and ways that ‘critical mass’ of More generally, how can we develop a holistic approach to the female representation can be sustained in future. totality of the Welsh landscape?

ISBN 978 1 904773 49 8 ISBN 978 1 904773 48 1 successes of devolution. Visitor figures have dramatically increased with more Underpinning the than 12 million visits to our sites over the last eight years. Free entry is now more important national psyche than ever as entry charges discriminate against those who are most badly Michael Houlihan outlines how National Museum Wales is responding affected by reduced income during a to the recession recession. We’re promoting the free entry message strongly, as there are many individuals and families in Wales In the modern world the spread and £53m of gross value added. This (often from the most disadvantaged of economic and technological is associated with 2,021 jobs, in areas) who remain unaware that they globalisation has been matched by a addition to our own staff members can enjoy the nation’s collections free fragmentation and re-focusing of the which total over 670 across all sites. of charge. Through a visit to our nation state. A major impetus has During a recession these are significant National Museums, visitors can find been the socio-cultural ‘nation’ figures. However, the cultural impacts purpose and meaning in a world of centred on the free expression of local of Wales’ National Museum are much increasing uncertainty. or ethnic identity. Culture is the deeper and more far ranging than the Of course, Amgueddfa Cymru, is connective fibre that gives life to such economics alone. more than just a series of national societies. It interprets the kinships, Through its seven national museums. Our curators work with common origins, collective myths museums, Amgueddfa Cymru provides museums and venues across Wales to and shared memories that are visitors with affordable, inspiring, and enhance local resources and enable essential to a vigorous community. It uplifting experiences. In turn these local audiences to engage with the commemorates the individuals and support family and social cohesion national collections. Through these the moments that have shaped our which is put under enormous stress partnerships, Amgueddfa Cymru is past. It communicates the beliefs, during recession, whether it be due to cementing and supporting community values and habits which will define financial problems, redundancies, or and social cohesion at a time when it the future. mental health issues. Since its is most needed. For example, working introduction in 2001, free entry for with the Welsh museums and libraries So, in the face of a global recession all to Wales’s national museums has association CyMAL and other partner what is the role of culture in our proved to be one of the greatest museums we enhance local resources society, as exemplified by the work of Amgueddfa Cymru? Over a year ago, we set out to research and understand how previous recessions have affected societies and we found that Amgueddfa Cymru has a key role to play in supporting the economy and reaching to the core of a society that values the preservation of its unique identity. Culture is an integral part of Wales’s national psyche and, as such, it makes a significant contribution to the Welsh economy. Amgueddfa Cymru is a part of this, providing high quality destinations which support tourism and the economy. Indeed, using economic models, it is estimated that the total Visitors at St Fagans National History Museum pass St Teilo’s Church. Originally contribution of Amgueddfa Cymru to situated outside Pontarddulas, near Swansea, and built in stages between 1100 the Welsh economy is £83m of output and 1520, it was opened at St Fagans in 2007. Heritage experts moved it stone by stone to the museum in a project that took 20 years to accomplish.

winter 2009 | 75 politics economy international science environment education health social policy culture

and generate additional involvement and participation for local audiences. In another initiative we are working alongside 14 museums, libraries and archives from throughout the UK in the 2012 Stories of The World Cultural Olympiad project. This will enable young people to engage with our collections in a highly participative way. The project will create a national strategy for engaging young people in the decision-making processes of the Museum, part of our broader public engagement and ownership programme. These citizen-centred initiatives are known to make positive contributions to the development of a civic society. Amgueddfa Cymru provides a broad range of routes into education A theatre performance at the National Slate Museum, Gwynedd, in and training which is critical during a front of a terrace of houses moved from Fron Haul in Tanygrisiau recession. In addition to being the near Blaenau Ffestiniog. The four houses had been condemned by Gwynedd County Council because of their poor condition biggest supplier of formal education outside the classroom in Wales, we continuing to make a serious envisage that as well as being a centre focus on specific projects. We have commitment to sustainability through for knowledge and traditional skills developed our very own apprenticeship our biodiversity research programme. within the wider network of heritage scheme at the St Fagans National We also have a responsibility to sites across Wales, St Fagans will be a History Museum, providing valuable promote Wales beyond its borders. Our gateway that directs visitors to other opportunities for new trainees while rich history and abundance of traditions cultural attractions. Ultimately, it will ensuring that the traditional crafts and are of interest to the world, and we want show visitors from across the world skills used to construct and preserve to help attract more visitors to come to that Wales is a confident, diverse and the historic buildings are preserved. We Wales and witness for themselves all forward-looking nation. are actively seeking funding in order to we have to offer. By participating in Although times are going to be be able to extend this scheme to our projects such as the Smithsonian Folklife tough for culture in Wales we must other sites, in particular the National Festival in Washington, developing links not lose sight of its importance in Slate Museum and Big Pit where with China and taking our Impressionist underpinning Welsh society. The traditional skills are an integral part art collection on an eighteen-month tour recession presents challenges, but it is of the visitor experience. of the United States, we will help put also providing opportunities by forcing We have also been actively Wales firmly on the international map. institutions to think more creatively encouraging people to not just visit our Despite the current financial climate about the way they contribute. For sites, but also to get involved. There our vision is to become a world class example, cultural tourism is of huge are a number of volunteering strands museum of learning. Innovative plans importance to the Welsh economy, available throughout the organisation, are underway to transform St Fagans but more can be done to develop this creating valuable opportunities for into Wales’s national history museum. sector at all levels. As a cultural people who might find themselves Building on existing strengths, we will expression of Wales, Amgueddfa unexpectedly unemployed to learn be able to tell the story of the people Cymru is planning for the future that new skills and meet new people. and places of Wales from the earliest the people of Wales want to create. Our research suggested that during times to the present day. This will recession, it is easy to lose sight of entail moving the archaeological sustainability issues. In Wales, this is collections from their current location Michael Houlihan is Director now a statutory requirement of the in Cathays in Cardiff to join the social General Amgueddfa Cymru – Welsh Government and we are history collections at St Fagans. We National Museum Wales.

76 | www.iwa.org.uk Artistic impression of Porth Amlwch in its heyday.

Amlwch and Mynydd Pa rys Bryan Hope explores the A time ravaged map dating to the at Llam Carw, close to Porth Amlwch, reign of Queen Elizabeth I found which is believed to be one of the history and development amongst State papers depicts the earliest, if not the very first of its kind in of Wales’s copper kingdom havens of Amlwch and nearby Dulas, Wales. Other industries associated with at the same time recording the fact mining at Mynydd Parys included a Amlwch, an insignificant hamlet on that work associated with the mines chemical process which, by dissolving the wild, craggy northern coastline had been completed at both. There scrap iron in the acidic copper sulphate of the Isle of Anglesey came to can be little doubt that whatever work rich water flowing from the mine, prominence in 1768 when vast was undertaken was brought about by resulted in the precipitation of metallic reserves of copper ore were the need to facilitate the exportation copper. This highly profitable operation discovered in nearby Parys of copper ore to the Crown smelters continued to extract the mountain’s Mountain (Mynydd Parys), some in . This was a trade which mineral wealth well into the first half two miles inland from the coast. was very much overtaken in scale by of the 20 th Century after conventional Although lead and copper ores had the transhipment in later years of mining had long since ceased. The been mined there before that time, vast quantities to the Swansea resulting copper depleted water was then flooding problems meant that the copper smelters. allowed to oxidise naturally in large amounts raised to the surface were Under the inspired direction of shallow ponds in order to produce high comparatively small. Thomas Williams, an Anglesey lawyer grade iron ochre, used as a pigment in known as ‘Twm Chwareu Teg’ (Tom paint making and other industries. Recent carbon dating of material Fair Play) to the local miners, and Mining activities have bequeathed discovered above and below ground ‘The Copper King’ to his business remarkable assets both above and reveals that the mines were worked at contemporaries, the output from the below ground which result from the Mynydd Parys during the early Bronze mines grew to such an extent as to way in which the mineral rich Age, some 4,000 years BP. Similarly, allow it to briefly dictate the world mountain was formed some 440 million the discovery of copper bun ingots on price of copper. years ago, and which now provide vital the mountain’s slopes and elsewhere on Drawn to Amlwch at that time by clues to the fuller understanding of the the island, some of which bear Roman the abundance of sulphur recovered complex geological processes involved. inscriptions, is a good indication that from an ore improvement process In 1793 an Act of Parliament the mines were worked during their known as calcination, Charles Henry allowed the widening and deepening of occupation of Britain in the first Hills, a prominent member of a Porth Amlwch and its regulation by century AD, although concrete evidence renowned family of London chemical Harbour Trustees. As a result, the of this has yet to be discovered. engineers, established a chemical works commerce formerly associated with its

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The lunar landscape of Parys Mountain copper mine has featured in many movies and, on television, in Dr Who western side transferred to the newly company committed to historical and access, these allow pedestrians to visit built facilities on the eastern side, scientific research, education, and the historic site. Similarly, by raising thereby freeing up land which had conservation as well as the economic the historic profile of Porth Amlwch, previously been unavailable for regeneration of the surrounding area the unsympathetic development of alternative development. This allowed through heritage tourism. what has recently been described by the establishment of a ship building yard The Trust has taken a long term a pleasantly surprised visitor as one by Nicholas Treweek, whose father surface lease on Mynydd Parys where, of Anglesey’s best kept secrets has James had been brought to Amlwch by with grants from the former Welsh hopefully been avoided. the powerful Vivian family to take Development Agency it has built a car The Trust has been successful in overall control of mining operations at park and a viewing platform, and raising the national profile of Amlwch. Mynydd Parys. This small pioneering created a safe signposted trail around For instance, it has featured in shipyard was later eclipsed by a larger the workings. In Porth Amlwch it has television programmes such as one owned by Captain William Thomas. created a heritage walk and taken leases ‘Restoration’, ‘Fred Dibnah’, ‘Extreme He was a local man who ran away to from the Isle of Anglesey County Archaeology’ and, more recently, the sea aged eleven and returned eight years Council on the old sail loft, a roofed ‘Coast’ series of BBC programmes. later, fully qualified to command a vessel copper bin, and the old watch house. Mynydd Parys has also been used as of his own, after his parents had Over the past five years a heritage a location for an episode of ‘Doctor abandoned all hope of ever seeing him centre in the sail loft has attracted an Who’, as well as the internationally again. He and two of his sons went on average of 13,000 visitors year. Many successful film ‘Mortal Kombat 2’. to build no fewer than 41 vessels in of these are local people demonstrating In association with national Amlwch ranging from schooners to in a practical way their support for the organisations, including National steamships, and a further six vessels Trust’s activities, which include the Museum Wales, CADW, and Bangor in their yard in Cumberland. Basil publication of booklets relating to University, as well as Menter Môn, the Greenhill, a curator at the National Amlwch’s early industrial history, and Trust is now seeking major funding to Maritime Museum in Greenwich the organisation of several Day Schools. take the Mynydd Parys experience to described these later vessels as being Mynydd Parys, which was fast a new level. among the finest of their kind ever built. becoming an unofficial refuse tip, has The evident need to record and since been protected from further Bryan Hope is an Anglesey historian. protect this heritage inspired the despoliation by the Trust’s installation This article is based on a Mynydd creation of the Amlwch Industrial of gates at its several entrances. While Parys day school organised by the Heritage Trust, a non-profit-making preventing unauthorised vehicular IWA’s North Wales Branch in June.

winter 2009 | 79 last word Our tribal prejudices Peter Stead I was initially disappointed to learn that so years at the Grammar School were many Welsh soccer stars were from the amongst the happiest of my life. I took north. I was able to live with this and even my first political steps in with adopt heroes from those parts when I speeches in the Rechabites’ Hall. realised that they came from coal mining Nevertheless, the Gower Party let us all communities which, of course, made them down by opposing Devolution in 1979. honorary southerners. Similarly my Edwina has deep roots in the Party and admiration for Lloyd George could Unions and is a terrific minister but her develop unabated when I realised that not style threatens Wales with a new only was he born near the Man City experience. Doubtless we have become ground but, in any case, his family’s roots too casual and we need to be knocked lay in the wholly acceptable and lovely into shape. A headteacher like Edwina in I count myself free of any racial county of Pembrokeshire. But Nye every Welsh school and all our problems prejudice and indeed I have spent remained my real hero. He was born just would be solved. Perhaps we need the considerable portions of my life five miles from my Gran’s house. Bryn smack of firm government, but are we wishing that I was a New Jewish Terfel is the best in the world, but just ready to be taken in hand by a shop intellectual, a Pakistani batsman, or a imagine how much better he could have steward of the old school? West Indian fast bowler. Similarly I been if he had been born in Pontypridd. Then there is the man from Bridgend, have no problem with the English, a It is with this cast of mind that I a man perhaps from the new Wales? Just people who have given me one eighth approach the current leadership a few years ago it seemed as if everyone of my genes as well as my name. I (presidential?) contest in Wales. Many of came from Bridgend. This was Scott enjoy belonging to a UK minority and those registered to vote (and surely we Gibbsville. I thought of it as the Reading appreciate the tensions and rivalries should all have a vote?) will doubtless be of Wales: adjacent to power but suitably that determine the politics and looking out for ideological nuances. Others detached and nearer the best pubs and culture of these islands. will be counting the percentage of Welsh eating places. Of course, I have a soft spot words on the competing web sites. Locked for Bridgend. It was where my parents Inside Wales, however, it is another matter into my decades-old tribal prejudices, I both worked and fell in love and it was and domestically I concede that my halo approach the contest with attitude. where, as a visiting supporter of Maesteg, slips. We are a tribal people and since Personally I’m thrilled that there is a I first encountered the passions of Welsh childhood I readily wallowed in my Merthyr man in the running, albeit one club rugby. I sense from the Bridgend of prejudices. For example, I instinctively born a bit to the south of the old borough. today that a balanced open-minded judged by where they come Nonetheless, I have certain reservations perspective is possible. It is aware of the from. My parents were both from the about Huw. He studied in Edinburgh! No Valleys hinterland, at ease with the delights Valleys, an area that they took to be the wonder there have been times when he of the Vale and well-placed to influence defining heart of Wales. People from other looks and behaves like a member of the decisions at Cardiff. parts were also-rans. Scottish Labour Party, a group that could The other day I happened to visit There were further refinements. My have been cast in the Sopranos. I admire north Wales and realised how much father regarded Merthyr as ‘the centre of what Huw is trying to do for the both Wales and I had changed. I can civilisation’ and even neighbouring towns grassroots of his Party, ignored as they officially report that I am a ‘New were thought of as being less favoured. have been by London leaders, but he Welshman’. I have learnt that we are all Throughout my life I have met many must remember that his hero Keir Hardie the same. Everywhere I went in the talented and charming people from was an ardent devolutionist. Merthyr once north I met people eager to hear my Aberdare but initially they have to led the world. Today it should cherish its reports on the Ospreys and assuring me overcome the fact of their being ‘snakes’. history but also adjust to new realities. that they were coming down to see the Similarly talent has poured out of Yes, ‘Labour has to be Labour’, but Wales All Blacks. Suddenly it seemed less Llanelli, dear old ‘Sospan’, but a ‘Turk’ has to be Wales too. absurd that the leadership battle was an is a Turk, the infidel. Edwina comes to us from Gowerton, all Glamorgan affair. We are all moving With attitudes as extreme as this, one once a village now a suburb and a place I in the right direction and we must move is necessarily forced to make adjustments. remember with enormous affection. My forward together.

80 | www.iwa.org.uk IWA Women has a threefold purpose:

1. To increase the engagement of women with the IWA and civic society in Wales more generally. 2. To provide ideas for research activity and events which raise the profile of women’s concerns in Wales. 3. To increase the IWA’s female membership thus extending its reach and influence into previously Read IWA Women’s first report: unreached areas. Critical Mass: The Impact and Future Join the IWA Women, created as a direct result of Female Representation in the of the IWA conference, “Putting Women in National Assembly for Wales Their Place” held in March this year. £7.50 (£5 for IWA members)

Keep in the loop of emerging Welsh health policy and debate with Academy Health Wales , a branch of the IWA.