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REPRESENTATION in the APPOINTED STATE: the CASE of COUNCILLORS in the WEST MIDLANDS REGIONAL ASSEMBLY By

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REPRESENTATION in the APPOINTED STATE: the CASE of COUNCILLORS in the WEST MIDLANDS REGIONAL ASSEMBLY By REPRESENTATION IN THE APPOINTED STATE: THE CASE OF COUNCILLORS IN THE WEST MIDLANDS REGIONAL ASSEMBLY by THOMAS CHARLES GORDON OLIVER A thesis submitted to the University of Birmingham for the degree of DOCTOR OF PHILOSOPHY Institute of Local Government Studies School of Government and Society College of Social Sciences University of Birmingham March 2011 University of Birmingham Research Archive e-theses repository This unpublished thesis/dissertation is copyright of the author and/or third parties. The intellectual property rights of the author or third parties in respect of this work are as defined by The Copyright Designs and Patents Act 1988 or as modified by any successor legislation. Any use made of information contained in this thesis/dissertation must be in accordance with that legislation and must be properly acknowledged. Further distribution or reproduction in any format is prohibited without the permission of the copyright holder. ABSTRACT The rise of indirectly elected institutions, such as the West Midlands Regional Assembly, has democratic implications for notions of accountability, legitimacy and representation. The representative function of these bodies must be explicitly fulfilled if they are to be considered democratic. The conceptual focus of this thesis is the representative function of members of the West Midlands Regional Assembly. The analysis applies a representative role framework based on Pitkin’s “Four Views of Representation” to explore the formalistic and substantive elements of representation through an appraisal of focus, style, role and scope. The results show that there are weak accountability structures in place, leading representatives to adopt a trustee conception of their roles. A grounded theory analysis is utilised to explore additional factors not covered in Pitkin’s framework. This surfaced the structural factors and role motivations that affect role choice. The thesis utilises Weick’s concept of sensemaking to explore the interpretation and enactment of different representative roles taking into account the importance of institutions in framing micro sensemaking processes. This new methodology permits an appraisal of the relative influence of institutional context, structure and individual agency and delivers a new model for understanding the logics of representative action in appointed bodies. ACKNOWLEDGEMENTS First thanks must go to all the people who have helped me with the academic side of my PhD research beginning firstly with all the people I interviewed as part of the research. Particular thanks go to my two contacts at the now defunct West Midlands Regional Assembly, Esther Knight and Rose Poulter. I would also like to acknowledge the Economic and Social Research Council (ESRC) for their financial support via award PTA-033-2006-00067 over three of the last four years. A big debt of gratitude goes to Professors Chris Skelcher and Colin Copus and Dr Karin Bottom for their encouragement, support and patience. Particular thanks to Colin for his positivism from the outset, and Chris for challenging me throughout and asking difficult questions with a reassuring smile. Thanks must also go to my fellow PhD students and staff at INLOGOV particularly Tatum, Katie and Mark who have been encouraging, diverting and constructive in equal measure. I must not forget my older brothers in the department Mark, Michael, Jeff, Hugh and Roger who were always helpful, reassuring and generous with their time and insight. Various people set me on the trajectory to this PhD so I would also like to thank Bob Waterhouse, Dr Emma Carmel and Professor Michael Rush. I would like to thank Mum and Dad and Elizabeth as well as all those friends that have made the process bearable along the way: Jo Crompton for the coffees outside Priorsfield, Andy and Stella, The Martins, Abs and Gareth. Finally I wish to thank my beautiful wife Faith who tried to encourage me not to do a PhD and as soon as I began doing one provided more support, encouragement and motivation than I could ever need or imagine. TABLE OF CONTENTS CHAPTER 1: INTRODUCTION ......................................................................................................... 1 REPRESENTATION IN THE APPOINTED STATE .................................................................................................. 1 REGIONAL GOVERNANCE IN BRITAIN : A CONTESTED POLICY SPACE .................................................................... 4 The re-emergence of regional institutions ...................................................................................... 6 New Labour in Government ............................................................................................................ 8 Regional Development Agencies in England ................................................................................... 8 Regional Assemblies in England .................................................................................................... 11 Elected Regional Assemblies in England ....................................................................................... 14 The Sub-National Review and Abolition of Regional Assemblies .................................................. 19 THE RISE OF NON -DIRECTLY ELECTED FORMS OF GOVERNMENT IN THE UK ....................................................... 20 Defining quangos and their growth .............................................................................................. 21 DEMOCRATIC IMPLICATIONS OF QUASI -GOVERNANCE .................................................................................. 25 GOVERNANCE IN THE WEST MIDLANDS ..................................................................................................... 29 THE PROBLEMS OF APPOINTED REPRESENTATION : GAP / RESEARCH PROBLEM .................................................. 35 REPRESENTATION IN THE APPOINTED STATE : A RESEARCH PROBLEM .............................................................. 40 RESEARCH QUESTIONS ............................................................................................................................ 42 THE ARGUMENT AND STRUCTURE OF THE THESIS ......................................................................................... 46 CHAPTER 2: THEORIES OF REPRESENTATION ............................................................................... 50 INTRODUCTION ...................................................................................................................................... 50 REPRESENTATION AND DEMOCRACY ......................................................................................................... 51 The case for and against Representative Democracy ................................................................... 54 CONTEMPORARY THEORIES OF REPRESENTATION ........................................................................................ 55 Elite theories of representation, representative democracy and representative government ... 56 What forms a system of representation? ..................................................................................... 61 PITKIN ’S FOUR VIEWS OF REPRESENTATION ............................................................................................... 64 Formalistic Views of Representation ............................................................................................ 64 Descriptive and Symbolic Representation .................................................................................... 67 Substantive Representation .......................................................................................................... 71 A CRITICAL JUNCTURE : DELEGATE VERSUS TRUSTEE CONCEPTIONS OF REPRESENTATION ..................................... 72 CRITIQUE OF PITKIN ’S FOUR VIEWS OF REPRESENTATION ............................................................................. 76 SUMMARY : REPRESENTATION IN NON -ELECTED BODIES ................................................................................ 81 CHAPTER 3: THE REPRESENTATIVE ROLE ...................................................................................... 88 INTRODUCTION : THE REPRESENTATIVE ROLE AND TYPES OF REPRESENTATIVE .................................................. 88 NORMATIVE THEORIES OF REPRESENTATION .............................................................................................. 89 Representative focus, style and orientation ................................................................................. 90 The Rise of Political Parties and Implications for the Representative Role .................................. 95 STUDYING FUNCTIONAL REPRESENTATION : HOW REPRESENTATIVES REPRESENT ............................................... 97 Representative Scope .................................................................................................................... 98 The role of Members of Parliament .............................................................................................. 99 The role of Members of the European Parliament ..................................................................... 106 The role of councillors ................................................................................................................. 108 The developing role of the councillor ......................................................................................... 113 THE REPRESENTATIVE ROLE IN THE APPOINTED STATE ...............................................................................
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