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Governance and Locality in the Age of Reform: Birmingham, 1769-1852

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Governance and Locality in the Age of Reform: Birmingham, 1769-1852 GOVERNANCE AND LOCALITY IN THE AGE OF REFORM: BIRMINGHAM, 1769-1852 by DONNA TAYLOR A thesis submitted to the University of Birmingham for the degree of DOCTOR OF PHILOSOPHY School of History and Cultures College of Arts and Law University of Birmingham September 2017 University of Birmingham Research Archive e-theses repository This unpublished thesis/dissertation is copyright of the author and/or third parties.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: This thesis examines the development of Birmingham’s local administration from the late eighteenth to the mid-nineteenth century, a period of intense reform policy in Britain. It presents an in-depth appraisal of processes that promulgated administrative change during a crucial period of the town’s development. There has been a tendency in current literature to present Birmingham in this period as a badly managed town, governed by disparate, self-elected bodies. The research presented here challenges that perspective through a close analysis of Birmingham’s administrations both pre-and post- the 1835 Municipal Reform Act. Under this legislation Birmingham was able to attain a Charter of Incorporation, with its first town council elected in 1838. The move to corporation status was badly managed, at a national and local level. As a result, the new administration was not well received, and the first years of its existence were blighted by uncertainty and opposition which, on occasion, descended into riot. Nevertheless, the new administrative system prevailed, and made achievements which current literature has failed to fully acknowledge. Birmingham’s administrative reform has been set here in the context of heightened political tensions in Britain, to understand the complex, often intense, relationships between public, local governance and national legislation. The thesis offers fresh, overlooked examples of town planning and actual achievements in Birmingham, gleaned from a thorough investigation of half a century’s worth of administrative documentation. These are presented alongside public responses to both local and national reform issues to give a more comprehensive insight into Birmingham’s pre-Chamberlain governance than is currently available. The research presented here also opens the potential for further exploration of the way in which the so-called Age of Reform played out in Britain’s burgeoning urban centres in the wake of Industrial Revolution. This is set in a context of change and continuity, challenging still prevalent notions of civic progress. As devolution has become an aspiration for many twenty-first century local administrations, it is useful to look back and understand past attempts at civic reform. For my Grandchildren, Kenzie, Cody, Isaac, Jonah, and any that may come after them. ‘Per Ardua ad Alta’ Don’t let anyone tell you that you can’t. Nanny loves you X Acknowledgements: I have been fortunate in having a great deal of support in the research and writing up of this project. Special thanks are foremost due to Professor Carl Chinn, who has supervised and mentored me throughout the process with great patience and invaluable advice. The research for this project would not have been possible without financial support from the Arts and Humanities Research Council. I am grateful to the School of History and Cultures at the University of Birmingham for the opportunity to pursue the research and for assistance in obtaining funding. The following academics have been generous with their time, advice and knowledge: Dr. Malcolm Dick, OBE (University of Birmingham); Professor Malcolm Chase (University of Leeds); Professor Ian Haywood (Roehampton University); Dr. Philip Salmon (History of Parliament Trust; IHR); Dr. Samantha Shave (University of Sussex); Dr. Ian Cawood (Newman University College); the late Dr. Chris Upton (Newman University College); Dr. Katherine Rix (History of Parliament Trust); Dr. Lucy Worsley (for telling me to ‘get on with it’); Dr. Katarina Navickas (University of Hertfordshire); Dr. Harry Smith (University of Cambridge); Professor Caroline Archer-Parré (Birmingham City University); Elaine Mitchell (University of Birmingham); Sue Thomas (University of Birmingham); Josie Wall (University of Birmingham) Despite going through immense changes and cuts to services, the ever professional and cheerful staff at Birmingham Archives, Heritage and Photography have been very supportive with their assistance in locating the most useful resources. Ivana Frlan at the Cadbury Research Library has been my source for finding the elusive ‘stuff’. During the writing up year of this thesis it was necessary to take on full-time employment. Special thanks are owed to my employer, Birmingham Museums Trust, and especially the management at Thinktank Museum – Lauren Deere, Anne-Marie Hayes, Lisa Stallard, Jess Hoyle, and Alistair Corrigan - for their invaluable support and understanding. Julie Crawshaw and Sophie Slade also played a role in keeping me going when enthusiasm flagged. Finally, there are no words to express my gratitude to the ‘dream team’ who have listened to my ramblings; tolerated my focus on nothing-but-the-thesis, providing hugs, tissues, alcohol and always encouragement. First and foremost, my ever-patient family (including Tilly the dog): Sam, Lydia and Anna. Our Mom; my sister Emma and my nephew Hayden who bailed me out. To my bbf Hema Patel and other friends and colleagues – extra- specially Charlie Clewer, Jake Bradding, Sue Hull, Michelle Morris, Helen Roberts, Sarah Bull, Shonagh Joyce, Sarah Beet, Frank Cooper, Steve Sutton, Jo Deakin, Pam Brown, Dave Evetts, Shaista Hussain, Jen Shufflebotham (the artist), Sarah Hayes, Laura Smith, Ed Shelley, Rae Black, Colin Hutcheson, Martin Baker, James Baldwin, Sarwar Rahman, Richard Winter, Amy Thompson and Jerin Begum – you all contributed more to this than you probably know. TABLE OF CONTENTS INTRODUCTION ............................................................................................................. 1 CHAPTER ONE – Birmingham Improved ..................................................................... 19 1.1 Manor, Parish and County ......................................................................................... 21 1.2 Improvement Bodies ................................................................................................. 32 1.3 Birmingham’s Sub-Districts ...................................................................................... 65 Conclusion ....................................................................................................................... 70 CHAPTER TWO – A TOWN WITHOUT SHACKLES ................................................ 75 2.1 Birmingham: Workshop of the World ...................................................................... 80 2.2 Society ....................................................................................................................... 90 2.3 ‘The First Cry for Reform ....................................................................................... 101 2.4 The Birmingham Tory Revival................................................................................ 117 Conclusion ..................................................................................................................... 122 CHAPTER THREE –‘A MOMENTOUS EXPERIMENT’: THE MUNICIPAL CORPORATIONS ACT OF 1835 ................................................................................ 127 3.1 Incorporation Debated: Birmingham ....................................................................... 146 3.2 ‘Incorporate Your Borough’, the campaign experience in Bolton, Manchester and Sheffield ........................................................................................................................ 165 3.3 Birmingham’s First Municipal Election .................................................................. 176 Conclusion ..................................................................................................................... 187 CHAPTER FOUR – FORWARD: BIRMINGHAM INCORPORATED ..................... 190 4.1 Municipal Men ........................................................................................................ 194 4.2 Forward .................................................................................................................... 202 4.3 The Duddeston-cum-Nechells Radical Reform Society .......................................... 214 4.4 ‘A State of High and Dangerous Excitement’: Birmingham and the Chartists ....... 224 4.5 Towards Amalgamation .......................................................................................... 238 Conclusion ..................................................................................................................... 245 CONCLUSION ............................................................................................................. 251 APPENDICES ............................................................................................................... 261 Appendix I Assets and Liabilities of
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