I’ve been thinking some more about devolution recently, particularly the ‘city region’/combined authority model that seems to be all the rage at the moment. I’ve outlined before why I think this isn’t a good way of going about devolution – not least because the people have been kept as far away from any discussions about it as possible – but I want to look in a bit more detail at the implications of part of that.
One of the mantras readily uttered by proponents of this method of devolution is that ‘people don’t want more politicians’, and so there are no major democratic institutions being set up to oversee these combined authorities. However, just because there aren’t new politicians doesn’t mean that there isn’t any new bureaucracy and like the LEPs before them, combined authorities seem to be a perfect way to create a whole new level of bureaucracy without any sort of democratic oversight. It’s a clever trick, in a way. If a combined authority did come with a new layer of politicians, there might be pressure to abolish something else to make up for that, but by using the distraction of ‘no more politicians’, a lot of bureaucrats can be sneakily created.
The important thing we are told about devolution is that it will hand lots of power to these new combined authorities, so there’ll be a lot of work for people to do, lots of reports to be written, circulated, consulted on, discussed some more and then perhaps approved. The bureaucracy of the combined authority will get to interact with all the existing bureaucracies – remember, nothing’s being abolished or even rolled up into the new authority – but democratic oversight of this process is going to be weak. Control is going to be in the hand of leaders of the local authorities that make up the combined authority, all of whom are going to be quite busy running their own authorities and not scrutinising the work of the combined authority in any detail.
So, we have a situation where there are more layers of bureaucracy than ever before, but fewer ways to keep check on them. What this gives is the possibility to develop what’s effectively a local deep state – a permanent bureaucracy that effectively sets the parameters of what is and isn’t possible within the political sphere and keeps everything within that consensus. An important part of this is having multiple bureaucracies that can feed off each other and give a seemingly democratic imprimatur to anything that emerges from their processes, despite the people having been kept as far away from it as possible.
The important part of having multiple overlapping bureaucracies is that you can give a policy document the impression of having had lots of involvement in it without it having strayed outside the bureaucracy. If there’s one organisation, it’s obvious that a document has just toured the departments, but once a whole host of different organisations are seemingly involved things take on a different complexion. Suddenly, a policy takes on a life of its own, with no clear origin, but lots of people trying to push it through on multiple fronts.
The important thing to note is that there isn’t any active conspiracy here, just people doing what comes naturally when bureaucracy is left unchecked. Their job is to make policy, and in a vacuum of any real political direction, they’ll go ahead and do what seems right to them, which will normally be whatever is the current political mainstream consensus. Even if an idea starts outside the boundaries of the currently acceptable, by the time its been bounced around several different layers of bureaucracy it will have become the requisite shade of grey.
Devolution should be about giving areas the chance to claim power for themselves and do things differently, but the current proposals don’t achieve that. All they’ll do is create a series of new local bureaucracies that are tied into the same way of doing things as everyone else, with no democratic oversight or control that would be able to control the bureaucracy. Instead, we’re likely to get a bureaucratically-dominated system where any democratic involvement is going to involve little more than rubber-stamping decisions that have already emerged from the deep bureaucratic consensus.