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Elected Mayors and City Leadership Elected Mayors and City Leadership Summary Report of the Third Warwick Commission What is the Role of Elected Mayors in Providing Strategic Leadership to Cities? First Published April 2012 Chairman of the Commission Professor Wyn Grant Research Director and Report Author Professor Keith Grint Doctoral Researcher Clare Holt A full list of Commissioners is available at www.warwick.ac.uk/warwickcommission/electedmayors/commissioners Commission Secretariat Kevin Johnson and Marc Reeves RJF Public Affairs Summary Report of the Third Warwick Commission 3 Elected Mayors and City Leadership Summary Report of the Third Warwick Commission Contents Foreword from the Vice-Chancellor 4 Introduction from the Chairman 5 Executive Summary 6 Statement from the Commissioners 8 Introduction to the Report 12 History of Local Government 16 Governance 20 Directly Elected Mayors – Why Now and What Now? 26 1) Placeless: Civicism and Social Identity 26 2) Accountability and Facelessness 28 3) Politics and Pointlessness 32 Costs 35 Recommendations 36 References 39 Endnotes 42 4 Foreword Foreword From the Vice-Chancellor, Professor Nigel Thrift am delighted to welcome this report, elected mayors and, in particular, whether a summary of the work to date of the such a model provides for more effective Third Warwick Commission. strategic leadership of cities. We have drawn I rd On 3 May 2012, registered voters in several on national and international experience cities in England will decide whether to adopt and data to inform a debate which is often a new system of local leadership. As this report extremely parochial, although one which is explains, in some ways this is just the latest not necessarily divided on party lines. stage in the evolution of local government in We wanted to share our work to date in England. However, with cities increasingly advance of the forthcoming mayoral referenda important in terms of the economic, social to enable electorates as well as policymakers and cultural development of the nation as to have access to the research and our initial a whole, the decisions of ten electorates findings. We plan to continue this work, could have far reaching consequences. As a including publishing the evidence from a series research university of world standing with a of interviews in due course. network of global connections, we set out to Warwick Commissions present us with bring international experience to bear on an an opportunity to harness scholarly expertise important national and local policy area. from across the University and to draw In the best traditions of intellectual upon the expertise of other distinguished discovery, Warwick Commissions are charged figures in the field. I am delighted that we with carrying out independent analysis of were able to bring together Professor Wyn a particular issue with the goal of making Grant from the Department of Politics and practical and realistic recommendations about International Studies and Professor Keith Grint how to move it forward. The University aims to from Warwick Business School to lead the draw on its scholars, their expertise and their Commission and its research programme. networks of professional contacts to address Meanwhile, I am extremely grateful to issues of global importance. The aim of the all the external Commissioners who agreed Commissions is to make thought-provoking to work with us. Their insight has been contributions to the debate, thereby assisting invaluable and I hope that, together, we can policymakers to find solutions to sometimes continue to make a constructive contribution seemingly intractable problems. in this arena. Many commentators have cited the lack of empirical evidence on the subject of I commend this report to you. Summary Report of the Third Warwick Commission 5 Introduction From the Chairman of the Commission, Professor Wyn Grant was delighted to accept the invitation from history can be incredibly helpful. As Prof from the Vice Chancellor to chair this Grint lays out, understanding how we reached ICommission. Elected mayors and city this point in terms of local government helps leadership are central to the localism to explain the context of the choice in front of agenda on which the Coalition Government ten cities. has placed such emphasis. The Warwick Commission has This report represents a timely summary undertaken more international comparative of the Commission’s work, including the research, at least in relatively similar political international research programme led by my systems in the ‘Anglosphere’, than has been colleague Professor Keith Grint and supported the case to date. We are grateful to a number by Clare Holt. of mayors, council leaders and their staffs in We will be publishing further material providing time for interviews with us. I am in due course and hope to continue our work also grateful to academic colleagues involved through the summer and beyond if any in the work, including the Warwick-Boston cities choose the elected mayoral model. partnership which has assisted with our In particular, we are keen to support the research in North America. transition process, looking at areas from To anyone looking for a simple yes/no remuneration to management structure. As answer on the issues of elected mayors from highlighted in this report, we also want to take the Commission or my fellow academics will forward the work we have started in terms of be disappointed. The evidence and the cost benefit and measurement. arguments are, of course, too complex. Our The Statement from our Commissioners evidence suggests that elected mayors offer a begins to set out some of their thinking real opportunity for change in a place where based on the research presented to them, change is needed. However, major questions their own experiences of the subject and our remain over powers and footprints of the deliberations. By its nature, it goes further proposed mayors. than the evidence base can definitively We hope this report assists voters in take us. However, the Statement is well determining their choice and supports central informed and seeks to offer practical government, councils and candidates to take observations and recommendations. forward the model with optimal effectiveness At moments such as these when looking in those places which change their to make decisions about the future, learning system of city leadership. 6 Executive Summary Executive Summary he Localism Act (2011) made provision for The Commission is strictly party and candidate the creation of directly elected mayors, neutral and has been open to any stakeholder Tsubject to confirmatory referenda, in with an interest in the subject of elected England’s largest cities. Referenda in those mayors, city leadership and governance. cities will take place in May 2012. Where the outcome is a ‘yes’ vote, elections will take There are probably two critical points in the place on 15th November 2012. In response to this development of local government in the UK. development The University of Warwick has First, it has progressed incrementally with funded a Warwick Commission into Elected little strategic direction except in so far as Mayors and City Leadership. In turn, the the central government has been forced at Commission is funding a doctoral researcher various points in time to address the byzantine to undertake a sequence of interviews with local structures and processes that have mayors, their officers and related experts, embodied the consequences of this reactive across the world, and so far that has involved incrementalism – the ‘Saxon heritage’: as 38 interviews in Australia, England, Canada long as ‘the locals’ kept their house in order and New Zealand as well as group discussions then London was content to ignore them – and a short ethnographical study. only when disease, squalor or riot infringed upon the metropolis did Whitehall decide The Commission has set itself the following key to ‘do something’ about the ‘locals’. Second, question: “What is the role of elected mayors the state has often attempted to realise, but in providing strategic leadership to cities?” seldom achieved, its aim of centralising control The purpose of the Warwick Commission on and its own authority for almost a thousand Elected Mayors and City Leadership is not to years – since the Norman invasion of 1066. judge whether directly elected Mayors are the The history of local government in the UK, right system of democratic governance, as then, can be described as one rooted in these this will be a matter for electors. Rather, the two dichotomous traditions: the centralising Commission sets out the background to this fetish of the state – the veritable ‘Norman development in terms of the history of local Yoke’ – bolted on to the decentralised chaos government, considers why elected mayors of the Anglo-Saxon heritage. The history of have risen to the surface of the political agenda local government has consistently reproduced now, and explores what existing mayors and the centripetal forces of the centre versus the their officers, and opponents, consider the centrifugal forces of the locale and, by and advantages and disadvantages of directly large, England has ended up with one of the elected mayors; in effect, the optimal scale most centralised governments in the world. and structure for the offices of elected mayor In turn, that seems to have demobilised the if one or more city votes to adopt the system. electorate in many localities and one of the Summary Report of the Third Warwick Commission 7 “What is the role of elected mayors in providing strategic leadership to cities?” underlying thrusts of the Localism agenda of hold the dangers of electing mayors whose the government is to reinvigorate the local body popularity obscures their inadequacy in leading politic by giving power away to elected mayors. their communities. This remains the danger of Precisely what that power might look like all forms of democracy and elected mayors are remains unclear at this point in the debate and just a different form of the democratic system that, in itself, may undermine the possibilities that links accountability to the electorate of some cities voting for a mayor.
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