Localism in Irish Politics and Local Government Reform
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Localism in Irish politics and local government reform No.2 2013 Editorial Contents An excessive focus on local issues in Irish politics is blamed for weakening parliament's Introduction 2 capacity to hold the Government to account and scrutinise legislation. This localism has been attributed, in part, to the weak system of local How does weak local government government. affect the constituency workloads of TDs? 2 This Spotlight aims to connect Members with these arguments at a time when local What reforms have the potential to government reform is on the legislative agenda. reduce constituency caseloads? 8 It considers how the Government’s programme Local government reform (2012) and of local government reform might affect the localism constituency workloads of parliamentarians. 8 Spotlight no 8, 2012 examined how the Action Conclusion 11 Programme on Effective Local Government (2012) addresses the weaknesses in local government. Spotlight no 2, 2011 considered No liability is accepted to any person arising whether changing the electoral system can end out of any reliance on the contents of this excessive localism in Irish politics. paper. Nothing herein constitutes professional advice of any kind. This document contains a general summary of developments and is not complete or definitive. It has been prepared February 2013 for distribution to Members to aid them in their Central Enquiry Desk: 618 4701/ 4702 Parliamentary duties. Authors are available to discuss the contents of these papers with Members and their staff but not with members of the general public. 1 Political parties have argued that weak Introduction local government leads to locally-focused parliamentarians. Fianna Fáil’s Niall A 2010 survey found that Irish TDs, on Andrews TD blamed weak local average, spent 53% of their working week government for creating ‘a power vacuum on constituency-based work and 38% on which is filled by a TD.’5 Fine Gael, Sinn parliament-based duties.1 Dealing with Féin and LabourTDs have argued that a queries from individual constituents reduction in constituency workloads is accounted for 40% of time spent on dependent on the reform of local constituency work (Fig.1). While this focus government.6 promotes a strong voter-representative Political scientists offer explanations for link, 69% of TDs surveyed in 2009 said localism in Irish politics including: that the level of constituency work compromised their legislative duties.2 electoral incentives particular to PR STV Figure 1: Time spent on different unresponsive public administration 3 aspects of Constituency Work weak local government and7 executive dominance of the 8 Working on legislature. constituents' This Spotlight considers how weaknesses cases in local government may lead to excessive 10% localism in Irish politics. It examines how Lobbying on the Government’s local government behalf of the reform programme will address these constituency 40% weaknesses. 25% Visiting How does weak local Constituency 25% and delivering government affect the leaflets constituency Tabling PQs workloads of TDs? on behalf of constituents W eaknesses in Irish local government may be summarised as: 1. Narrow range of functions for which Advocates of political reform argue that local government is responsible and excessive focus on local issues by the dominant role played by central parliamentarians has reduced government agents in local service parliament’s capacity to collectively hold delivery; the Government to account and to play an 2. Complexity of institutional structures 4 active role in the legislative process. at the local level, 1 9% of time was spent on ‘other’ duties. Survey conducted by political scientists in Trinity College 5 Niall Collins TD, Magill S.School, July 2012. Dublin for the Joint Committee on the 6 Olivia Mitchel TD and Brian Stanley TD, Dáil Constitution, 30th Dáil, Third Report debates. 5 July 2011; Aodhan O’Riordan, Irish 2 O’Leary Eimear, UCC, Doctoral Thesis. Survey Times, 31 January 2013. of 66 TDs of the 30th Dáil. P. 186. 7 Farrell (1985) and 2011 (politicalreform.ie) 3 JCC, 2010, Fourth Report. P.22. 8 Gallagher and Komito in Coakley and Gallagher, 4 Joint Committee on the Constitution (30thDáil) edrs, Politics in the Republic of Ireland. London Fourth Report; Former Taoiseach Garrett and New York, Routledge. Farrell David, (2010). Fitzgerald, Magill Summer School 2010; Former p. 248; Hunt Brian (2010) ‘The Role of the Houses Minister Noel Dempsey, (2002) All Party of the Oireachtas in the Scrutiny of Legislation’ Oireacthas Committee on the Constitution Seventh Parliamentary Fellowship Houses of the Report Oireachtas pp.16-19. 2 3. Weak and less visible political - Staff management leadership at a local level Public health 4 of 10 (Germany, - Hospitals Hungary, Finland 4. Dependency of local government on 9 - Primary care and Portugal, the central government funds. former two providing We consider how each of these hospital care, the weaknesses can cause parliamentarians latter two providing primary care but not to be locally-focused. hospital care). 1. Narrow range of functions and Roads and public All 10 (note that this central government dominance transport function is exercised Irish local authorities possess three out of by urban authorities, groups of authorities nine core competencies associated with together or by higher local government in ten other European tier authorities). countries (Table 1). They are town Water 9 of 10 (excluding planning, housing and roads (secondary the UK) 10 roads only). It should be noted that Irish Electricity supply 8 of 10 (excluding local authorities do have competency in the UK and Hungary) core functions omitted from the study: Gas supply 6 of 10 (excluding environmental planning, waste collection the UK, Portugal, and sewage treatment, and culture. This Hungary and is generally also the case for the other ten Finland) countries. Economic development 7 of 10 (excluding including grants to Germany, Hungary Table 1: Core competencies of local industry and Sweden). 11 authorities in 10 European Countries Unlike most other European countries, Functions Country social welfare, health and education do Town Planning All 10 not come under the remit of local Germany government. Local representatives have Netherlands no direct connection to the network of Spain Portugal social welfare offices or HSE centres France Sweden operating throughout the country. The Hungary UK Italy Finland Department of Education is responsible Housing 8 of 10 (excluding for delivering primary and secondary - Direct or indirect Italy and the education. management Netherlands. Note As such, many issues affecting citizens’ - Housing benefits that in the UK, only everyday lives are not controlled by local housing benefits is a government.12 If local government were competency). Social welfare and All 10 itself responsible for administering social social services welfare payments and health services, for Education All 10 example, rather than local offices of the - Buildings/facilities department, locally-elected representative - Educational support might be the more obvious contact point if citizens required a brokerage service.13 Compare Ireland to Finland. Finnish 9 Spotlight 8 (2012) Local Government Reform. parliamentarians, like Irish TDs, have 10 Water Services Bill 2013 provides that local electoral incentives to focus heavily on the authorities will no longer be water authorities but 14 agents of Water Ireland the new central body. constituency. Finland has a candidate- 11 Council of Europe (2007) Local authority competencies in Europe prepared with Professor G. 12 Gallagher and Komito, (2010) p. 248. Marcou, Paris-Sorbonne University pp. 45-6. 13 MacCartaigh (2008) Government in Modern Information for Finland from UN-Habitat and Ireland IPA, Dublin p. 114 Seville City Council (2007) National legal 14 Raunio T (2005) in Gallagher and Mitchell, edrs frameworks for local government international (2005) The Politics of Electoral Systems Oxford, action. Oxford University Press. P. 484 3 focused proportional representation Figure 2: Prominent Issues in the average electoral system like PR STV and local, as TDs’ caseload19 opposed to national, party selectors are largely in control of candidate selection. % of TDs for whom However, where Irish and Finnish political systems differ is in the strength of local this issue arises government. Finnish local government has an extensive range of functions and daily has a high degree of financial autonomy to raise funds.15 Planning… 18% Housing 76% Strong local government explains at least Property… 6% in part why Finnish parliamentarians focus first and foremost on influencing national Social welfare 74% legislation.16 The ‘welfare officer’ role, Health 64% which generates casework, is ‘practically Immigration 27% non-existent.’ Parliamentarians do not Agriculture 27% tend to have designated constituency Broadband 14% offices and regular clinics are very much Education 26% the exception. A summer tour of the 0% 20% 40% 60% 80% constituency’s municipalities is a more typical way to retain contact with the electorate. It suggests that local government’s narrow range of functions explains at least part of Constituency problems tend to be directed the demand for TDs to be ‘welfare officers’ to the parliamentarian only as a last or mediators. However, the question resort. Instead, the agencies of local remains as to why people contact public government which deliver the wide range representatives at