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Unpacking Diversity: Barriers and Incentives to Standing for Election to the National Assembly for Wales

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Unpacking Diversity: Barriers and Incentives to Standing for Election to the National Assembly for Wales Unpacking Diversity: Barriers and incentives to standing for election to the National Assembly for Wales A Report Commissioned by the Remuneration Board of the National Assembly for Wales July 2018 Authors AUTHORS PROFESSOR ROGER AWAN-SCULLY Professor of Political Science, Wales Governance Centre at Cardiff University DR DIANA STIRBU Senior Lecturer in Public Policy, School of Social Professions, London Metropolitan University DR HUW PRITCHARD Lecturer in Devolved Law & Governance, Wales Governance Centre at Cardiff University NYE DAVIES PhD Student, Wales Governance Centre at Cardiff University JAC LARNER PhD Student, Wales Governance Centre at Cardiff University We would like to thank Elisabeth Laird (visiting Research Assistant), and Naomi White (funded through the Cardiff University Research Opportunities Placement programme) for their hard work and assistance in preparing this report. This project received ethical approval from the Cardiff School of Law and Politics Research Ethics Committee (SREC) on 30/05/2017 (Internal Reference: SREC/300517/16). ABOUT US The Wales Governance Centre is a research centre that forms part of Cardiff University’s School of Law and Politics undertaking innovative research into all aspects of the law, politics, government and political economy of Wales, as well the wider UK and European contexts of territorial governance. A key objective of the Centre is to facilitate and encourage informed public debate of key developments in Welsh governance not only through its research, but also through events and postgraduate teaching. London Metropolitan University aims at transforming lives through excellent education. The School of Social Professions holds expertise in areas of devolution and good governance. CONTACT DETAILS Wales Governance Centre, Cardiff University, Law Building, Museum Avenue, Cardiff CF10 3AX Email: [email protected] Web: http://sites.cardiff.ac.uk/wgc/ 2 Unpacking Diversity: Barriers and incentives to standing for election to the National Assembly for Wales CONTENTS EXECUTIVE SUMMARY 6 LIST OF RECOMMENDATIONS 8 PART 1. INTRODUCTION & BACKGROUND 11 1.1. Our terms of reference 11 1.2. Background 12 1.3. Our approach and methodology 13 1.3.1. The review of evidence 14 1.3.2. The Field study - methodology 15 The Survey 15 Focus Groups 17 Semi-structured Interviews 18 Loomio - online discussion group 19 1.4. Limitations 19 PART 2. REVIEW OF EVIDENCE 21 2.1. Review of existing literature 21 2.1.1 Explanations 21 Individual factors 22 Structural factors 23 Political factors 23 Institutional factors 24 Sociocultural factors 25 Limitations of the literature 26 2.1.2 Solutions 26 2.2. Review of existing practice in other legislatures 28 2.2.1 Salary, Allowances and Pensions 28 2.2.2. Housing and travel expenses 30 2.2.3 Office Support 31 2.2.4 Job arrangements 32 2.2.5 Extra perks 33 2.2.6 Electoral incentives 34 2.3. Analytical framework 35 2 3 Contents PART 3. FIELD STUDY 36 3.1. Becoming an AM - The journey: eligible to aspirant candidate 36 3.1.1 What we looked at 36 3.1.2 What we found 36 Socialisation into Politics 36 Experience of Political Parties: Building Contacts and Networking 39 Experience of political parties: Candidate Selection 40 (Unconscious) Bias and the ‘selectorate’ problem 44 Experiences and Perceptions of Standing in an Election 45 The Electoral System 48 Support for Standing 50 3.1.3 Incentives to standing 54 3.1.4 Discussion 57 3.2 Being an Assembly Member 57 3.2.1 What we looked at 57 3.2.2 What we found 58 The role of an AM 58 Salary 60 Attitude towards expenses 63 Office support 63 Childcare 64 Travel and Accommodation 66 Work/life balance 67 Job Security 69 3.2.3 Ideas for change 70 3.2.4 Discussion 75 3.3. The Bigger Picture 75 3.3.1 Adjacent findings 75 3.3.2 What We Found 75 The National Assembly and Diversity 75 Lack of Understanding around Diversity 77 Welsh Language and Identity 79 Abuse and Harassment 81 Education and Knowledge 84 3.3.3 Discussion 85 4 Unpacking Diversity: Barriers and incentives to standing for election to the National Assembly for Wales CONCLUSIONS AND RECOMMENDATIONS 86 List of Recommendations within a Theory of Change Framework 88 ANNEX 1: THE FIELD STUDY 91 ANNEX 2: SUMMARY OF SURVEY ANALYSIS 92 ANNEX 3: DETAILED THEORY OF CHANGE 108 4 5 Executive Summary EXECUTIVE SUMMARY This report was commissioned by the Remuneration Board of the National Assembly for Wales to look at barriers and incentives for people who have been deterred from standing to the National Assembly and to address the question of whether ‘a diverse range of persons with the appropriate skills and interest are in practice deterred from standing for election to the National Assembly by any aspect of the remuneration package (salary, pension, child care, and office and staffing allowances) and what may provide the incentives to do so’. The research was conducted in two stages; through a review of evidence that explored academic and practical aspects of diversity and political recruitment, and a field study that used a mix of qualitative and quantitative methods to discover the lived experiences and perceptions of prospective candidates. This was done through survey, focus groups, one-to-one interviews, and an online engagement platform. The review of evidence drew on the supply and demand model of political recruitment and focused on identifying 1) explanations for lack of diversity and the barriers faced by individuals to accede to political office, and 2) solutions to improving diversity in legislatures, including incentives for people to stand. This allowed the consideration of individual, structural, political, institutional, and cultural factors that may affect political recruitment. The review also contained details of remuneration arrangements in legislatures of comparable sizes across the world. The field study explored the experiences and perceptions of prospective candidates during their journey from eligibility and aspiration for being a candidate, standing as a candidate, to being an elected Assembly Member. This allowed us to identify different barriers, or perceived barriers, at different stages, and possible incentives to overcome those. The report sets out different forms of socialisation into politics from three different groups of people; those who are party politically active, local councillors, and newcomers to formal politics. Barriers for moving from being eligible to an aspirant candidate partly depended on the pathway, with those on a party-political pathway at a distinct advantage in terms of support, information, and knowledge of processes. The research, however, identifies structural, institutional, individual, political, and cultural barriers for candidates in all three pathways. It highlights structural barriers in terms of the cost, time, and accessibility to standing, which are particular deterrents for underrepresented groups. Cultural, structural, and political factors, in terms of candidate selection and the electoral system and process were also seen as barriers to diverse representation. Wider contemporary political and cultural factors including a climate of toxicity in politics and the lack of understanding of the value of diversity, were raised as societal barriers. 6 Unpacking Diversity: Barriers and incentives to standing for election to the National Assembly for Wales We considered aspects of the job itself, such as access to information about the role, salary and other benefits, travel and accommodation arrangements, working arrangements, childcare, work-life balance, and job security. We found participants resonate well with features of the 21st century workplace - remote and flexible working and use of technology - to tackle institutional and individual barriers such as travel and being away from family. The report makes recommendations that are directly relevant to the Board and its strategic objectives. It also makes broader recommendations where the Board can influence and inform others, or bring diversity matters on the agenda. The report suggests a theory of change through which the Board can achieve its strategic objectives by focusing on: improving information for potential candidates; improving the engagement strategy; providing for flexible working arrangements; and, potential of job share arrangements. The report also makes recommendations where the Board can participate in a broader conversation on: a non-politically affiliated ‘one-stop shop’ advice website for candidates; exploring diversity quotas and monitoring. 6 7 List of Recommendations LIST OF RECOMMENDATIONS Within the context of our findings, and the further context of the Board’s own strategic objectives, we set out our recommendations: To engage effectively with a wide range of stakeholders to ensure we understand their needs and views [SO1] and Produce a Determination for the Sixth Assembly to inform all potential candidates one year before the Welsh general election [SO3] R1: The Board should review / design a clear public engagement and outreach strategy. R2: As part of the strategy, the Board should review its provision of information and use of external communication channels. This would entail a redesign of the Remuneration Board website and use of other platforms in line with principles of: A. Interactivity: moving away from static to more dynamic content. For instance the Board could create short videos about the range of expenses AMs can claim, and the rules for claiming expenses, but also about the support AMs receive in their roles. B. Accessibility: create and publish easy read versions for all major reports and disseminate via multiple channels and formats; C. Two-way communication: move away from the ‘push’ of information to establishing dialogue with stakeholders i.e. interactive webinars. R3: As part of the new strategy the Board should consider liaising with relevant internal stakeholders (i.e. the Assembly Education Services) to review what type of content and material they can feed into Assembly’s outreach, education and engagement initiatives. R4: As part of the new strategy the Board should liaise with relevant internal stakeholders (i.e.
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