Territorial configurations of governance: Contrasting rescaling experiences in the UK and Spain

CRESR Seminar, 17th October 2012

Tony GoreCRESR, Sheffield Hallam University

• Literature on 'state rescaling'• Post-war rescaling episodes in GB• Decentralisation and consolidation in

post-Franco Spain• Towards a rescaling typology• Lessons for rescaling thinking and

research

Introduction

• Focus mainly on economic management and regulation: regions, city regions, etc.

• Provision of basic services excluded, but exact division unclear (lack of conceptual precision)

• Processes emphasise elite political strategies rather than social relations/negotiations

• Role of the state often seen in instrumentalist and/or reductionist terms (promotion of economic growth and capital accumulation)

Literature on 'state rescaling'

Local and regional rescaling in GBDecade Local Government Regional Policy/Government1940s LG Boundary Commission report Barlow Report1950s LG Commissions (Eng & Wales)

New Town Dev't CorporationsDevelopment AreasIndustrial Development Certificates

1960s Greater London Council32 London BoroughsLimited mergers & redefinitions

Regional Planning CouncilsSDAs, DAs, IAsLocation of Offices Bureau

1970s Major LG reorganisation (Eng, Wales & Scotland - 2 tier system)Separation of utility boards

Continuation of assisted areasScottish/Welsh Dev't AgenciesRural dev't agencies (MW, NI, H&I)

1980s Abolition of GLC & Met Counties Urban Development CorporationsPrivatisation of utilities

Enterprise ZonesSevere reduction in assisted areas 

1990s Move to single tier in Scotland and WalesSimilar move in parts of EnglandUrban Regeneration CompaniesOpen energy/telecomms market

Government Offices for the RegionsEuropean Structural Fund areasTraining and Enterprise Councils 

2000s Greater London AuthorityMulti-Area AgreementsSelected LA mergersLA shared service provisionNeighbourhood partnerships

Devolution of powers (Sc, W, NI)Regional Development AgenciesRegional AssembliesEuropean Structural Fund areasPan-regional initiatives

2010s Statutory City RegionsLA shared service provisionCombined authorities

Abolition of RDAsLocal Enterprise PartnershipsRDG, UGF, EZs

Move to single tier LAs in Wales and parts of England, 1996

Type of Change

MergerEnlargementReductionNo Change

Type of Change

MergerEnlargementReductionNo Change

Move to single tier LAs in Scotland, 1996

Type of Change

Part of City RegionCombined AuthorityMerged UnitaryDecision PendingProposal RejectedNo Change

LG merger process in England, 2009-2012

Local Enterprise Partnerships in England

Structure of Government in Spain

Level Spanish Name British Equivalent Consortia

Member

National Gobierno de España (1) Central Government Yes

Regional Comunidades Autónomas (17) Regional Councils Yes

Sub-regional Diputaciones Provinciales (52) Provincial Councils Yes

Inter-municipal Comarcas (117) County Councils Poss

Mancomunidades (1,020) Municipal Associations No

Local Municipios (8116) Local Authorities Yes

Spain: Historical Regions

Spain's Autonomous Communities

Provinces of Spain

Pop'n Range Number % of Total % of Pop'n Avge Size2,000 or less 

5,791 71.4 7.2 500

2,001-5,000 

1,005 12.4 7.6 3,100

5,001-20,000 

922 11.4 20.8 9,400

20,000-50,000 

253 3.1 13.3 29,500

50,001 or more 

145 1.8 51.1 155,000

All 

8,116 100.0 100.0 5,500

Size of Spain's Municipalities, 2011

Country Avge Size of Municipality

% with <5,000 Population

Number with>100,000 Pop'n

Czech Republic 1,650 96 5France 1,700 95 37Slovakia 1,900 95 3Hungary 3,200 91 9Austria 3,500 91 5Latvia 4,350 91 2Spain 5,500 84 63Germany 6,700 77 81Italy 7,300 71 43Greece 10,750 53 8Portugal 34,400 20 23Netherlands 36,900 2 25Denmark 55,500 3 6UK 140,000 0 67EU27 5,400 82 500

Comparison with Selected EU Countries

Device Number Nature Focus

Mancomunidades 1,020 Voluntary horizontal

association between LAs

Delivery of services &

area promotion

Consorcios 981 Voluntary association

between LAs & others

Single function or

interregional

Comarcas 117 Transfer of powers from

above and below

Delivery of services &

area promotion

Áreas Metropolitanas 3 Metropolitan strategic

association

Barcelona, Valencia:

planning/econ. dev't

Legal obligation 2 Metropolitan strategic

association

Barcelona, Madrid:

planning/infrastructure;

selected services

Collaborative local governance in Spain

Comarcas in Catalonia

Comarcalización de Aragón

El Maestrazgo - Location

Cantavieja from below

Cantavieja from above

Comarca del Maestrazgo (Teruel Province)

Comarca del Maestrazgo - Boundaries

Logo for Maestrazgo Comarca

Comarca del Maestrazgo - Main Office

Mancomunidad Turística del Maestrazgo

Logos for Mancomunidad Turística & Parque Cultural

Area covered by Maestrazgo Parque Cultural

Towards a typology of rescaling techniques

Formal Boundary

Changes

Transfer of Powers &

Functions

Cross-Boundary Governance

Enlargement Devolution Voluntary LA associations

Reduction Centralisation Shared service provision

Amalgamation Consolidation/fragmentation Public-private partnerships

Removal of enclaves Removal/addition of tier(s) Pan-regional initiatives

Redrawing Change in fiscal autonomy Special purpose vehicles

  Privatisation/marketisation  

• Treat state institutions in terms of social relations and hence sites of negotiation

• Examine historical, economic and institutional conditions & frameworks (incl. prior rescaling)

• Trace through processes of negotiation and positions taken by those involved

• Factor in public perceptions re. attachment to places/territories

• Include fiscal arrangements as central: rescaling as power transfer or cost reduction

Lessons for state rescaling theory and research