AN ESRC DEVOLUTION RESEARCH PROGRAMME / IPPR PROJECT

SUMMARY

The proposal is for one year IPPR / ESRC Devolution Programme project to explore implications of devolved government across a wide range of policy areas. Combining the policy breadth and political influence of IPPR with the specialist expertise of the ESRC devolution programme, the proposal is for a high profile project that will inform policy thinking in relation to the devolution agenda.

BACKGROUND

The establishment of devolved government in Scotland, Wales, Northern Ireland and London has arguably been this government's most radical reform, yet comparatively little attention has been paid to the consequences of differentiated policy making.

The UK has always had a differentiated policy process. Territorial departments have housed separate administrative structures for Scotland, Wales and Northern Ireland and allowed for significant territorial variations in policy process and outcomes. The impact of devolution takes the differentiated policy process to new levels, however. Firstly, it opens up territorial policy variation to new forms of scrutiny and accountability both within the devolved institutions and at a popular level in devolved elections. Secondly, the existence of devolved authorities with asymmetrical powers will produce even higher degrees of policy variation around the UK, as is already become apparent.

Three sets of questions arise from this. The first is about the policy-making process. Though an integrated civil service remains in Great Britain, the fields of activity of civil servants in the different parts of the UK have become more discrete, especially where extensive powers have been devolved. New forms of intergovernmental relations are the result, some of which have been formalised and codified, while others are emerging informally and organically. What does the new map of intergovernmental relations look like, and how well does it work? Does it work better in some parts of the UK than others? Are lessons being shared? How does the 'new' intergovernmental relations deal with policy-making for England, where strong devolved bodies are absent? How well does it accommodate the very different administrative arrangements that exist in Northern Ireland? How far have 'horizontal' intergovernmental links emerged to complement the 'vertical' links that exist between Whitehall and the devolved bodies.

The second set of questions is about whether policy variation matters. There may be variation in process - policy-making may be more inclusive of private sector actors, or be better 'joined up' across departments, in some parts of the UK than others. The outcomes of policy-making may also differ as different territorial and electoral priorities leave their mark. This has already been seen in relation to education and health policy, for example. Differences - and therefore new inequalities - will emerge. Is this problematic, or when does it become problematic? How much variation is feasible or legitimate? In what circumstances can devolved governments act as 'policy laboratories' for promoting innovation and spreading good practice? How much central regulation is necessary in order to keep the 'playing field' level for economic competition and public expectations?

The third set of questions flows from the previous two and concerns the future direction of the devolution process itself. Given these policy, procedural and structural implications, what lessons should we learn for the future of devolution in the UK - both for any extension of devolution to Cardiff, Belfast and Edinburgh and for the development of regional government in England?

The ESRC has established a comprehensive devolution programme and much of the current work is focused on understanding devolution as it unfolds. With IPPR's input across a wide range of policy areas, a joint ESRC/IPPR programme of work would fill a much-needed gap - to consider implications of differentiated policy-making and the consequences for the future of the devolution process.

THE PROJECT

The project will consist of a seminar series to consider papers, based on original research, which explore these issues. The programme of work will result in a publication to be jointly published by IPPR and the ESRC Devolution Programme.

The seminar series will be addressed to policy-makers at all levels of government and in all territories of the UK and is designed to promote exchange of ideas and good practice. It will consist of at least six separate sessions spread over twelve months from July 2001. Sessions will be led by members of the ESRC Devolution Programme and the IPPR and draw on the work of ESRC and IPPR researchers, academics and policy makers. Most sessions will be held in London, though at least one will take place in Edinburgh (possibly jointly with the Scottish Council Foundation), Cardiff (possibly with the Institute of Welsh Affairs) and Belfast (possibly with Democratic Dialogue). A session in an English regional venue - e.g. Newcastle or Birmingham - may be possible.

The first seminar will set the scene by exploring intergovernmental relations and policy differentiation in other decentralised political systems. It will build on a seminar held under the auspices of IPPR's Remodelling Government project in February 2001 . Subsequent sessions will be on particular policy areas chosen to highlight different aspects of the post-devolution policy process in the UK: where extensive powers have been devolved; where Whitehall remains the key partner; where 'joined-up' government is an aspiration; where policy remains highly sectoral; and so on. The programme will be flexibly designed in order to allow for topical policy issues to be the focus of seminars. The final session will draw together patterns and insights from the series as a whole.

The seminar programme will be commissioned co-ordinated by a senior researcher based at IPPR, who will commission and compile background papers. The researcher will be supported on a day-to-day basis by Peter Robinson, Senior Economist, IPPR. The overall programme of work will be jointly managed by Professor Charlie Jeffery of the ESRC Devolution Programme and Peter Robinson.

A publication will be produced as a result of the research and seminar series - building on commissioned seminar papers, research undertaken by the IPPR researcher and additional commissioned papers.

INDICATIVE LIST OF SEMINAR TOPICS

1. The policy making process: mapping the current intergovernmental process.
2. Social Exclusion/Inclusion: Realising Joined-Up Governance?
3. Health: How Much Policy Variation in a National Health Service?
4. Further and Higher Education in the UK's 'Policy Laboratories'
5. Unequal opportunities? The impact of devolution on the equality agenda
6. Industrial and regional policy: inward investment and the future of the DTI's UK functions.
7. Beyond Barnett: financing devolution
8. Transport: an integrated strategy?
9. Differentiation and Regulation: The New Dynamics of Policy-Making in the UK

BACKGROUND TO RESEARCH PARTNERS

ESRC Devolution Programme

This programme of research is running from 2000 to 2005 to examine a wide range of matters relating to devolution, constitutional change and consequential effects. The research programme has three themes - nationalism and national identity; governance and constitutional matters; and economic and social policy. The programme's Director is Professor Charlie Jeffery.

IPPR

IPPR is Britain's leading left of centre think tank developing new routes to social justice. Its purpose is to contribute to public understanding of social, economic and political questions through research, discussion and publication. IPPR currently has a team of 30 researchers working in seven project teams: health and social policy, education and employment, media and new technologies, citizenship and governance, sustainability, public involvement and the Commission on Public Private Partnerships. IPPR has previously undertaken work on constitutional reform and devolution and published The State and the Nations (Tindale, 1997).

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