The English Question
Thanks to the Blog Great Britian not Little England for the link to this report from Publius: The Journal of Federalism by Robert Hazell.
Devolution to Scotland and Wales throws up related questions about the government of
England. Does England need to find its own separate political voice? Does England too need devolution? There is little demand for an English parliament. ‘‘English votes on English laws’’ commands more support but would be impossible to implement in practice. Despite the setback of the Northeast referendum defeat, the future will see further development of regionalism in England. Regional government is the only institutional solution that could help to give England a louder voice and also help to decentralize the government of England. But it is not inevitable. There is no logic in the process of devolution that requires the English to have devolution too.
England is the gaping hole in the devolution settlement. Some argue that devolution will not be complete, and the settlement will not stabilize, until the English Question has been solved. Others believe that England can be left out indefinitely and devolution confined to the Celtic fringe. This article aims to explain the different formulations of the question and to analyse one by one the range of different answers.
The English Question can be divided into the following groups of subquestions:
1. Strengthening England’s place in the Union:
_ Does England need to find its own separate political voice, to rebalance the louder
10 political voice accorded to Scotland, Wales, and Northern Ireland?
_ Could this be supplied by an English parliament, ‘‘English votes on English laws,’’
independence for England?
2. Decentralizing the government of England:
_ Does England too need devolution, to break from the excessive domination of the
15 central government in London?
_ Can this best be supplied by elected regional assemblies, administrative regionalism,
city regions, stronger local government, elected mayors?
3. Continuation of the status quo:
_ Or do the English want none of the above, with no separate representation or
20 political voice, and no share in devolution either?
These questions have come onto the political agenda as a result of devolution to
Scotland and Wales. They are big issues, issues that will determine the future shape
and nature of the United Kingdom as much as the future government of England.
Devolution has already profoundly changed the United Kingdom’s system of
government, but it extends to only 15 percent of the population. England, with
85 percent of the population, for the moment is left out. If the English ever choose to opt in, the choice they make will have huge consequences not only for the government of England but for the whole future of the Union.
As devolution was a top down exercise imposed and assisted by central government, it is wrong to now look for a grass roots movement calling for the English to opt in, the English preferred the status quo that was as part of one union, this union has now been partially dismantled.
This erroneous argument is followed through into the rest of the report; Hazell, it seems is quite happy to accept the results of the governments top down forcing of the issue in Scotland and Wales, but now asks the English people to start a grass roots movement in order for the English people to exhibit a desire for devolution.
Different Versions of the English Question
Improving the Government of England or Strengthening England’s
Place in the Union? The ‘‘purely English’’ version of the English Question asks: How can we improve the government of England? Interest in regionalism as a possible solution goes back to Fawcett (1919) and Cole (1947) (Tomaney, forthcoming). It springs from long- standing concerns about the poor performance of many of England’s regions,especially in the North, and the difficulties faced by central government in finding effective policy instruments and institutions to drive up regional economic
performance. Successive governments, Labour in the 1970s and Conservative in the1980s, had given up on local government as providing the solution because of its lack of political will and lack of effective capacity. More and more functions were
transferred from local government to centrally controlled public bodies, many
operating on a larger scale at regional rather than local level. In 1994 the Conservative government led by John Major took regionalism a step further by bringing together the regional outposts of four central government departments into new government offices for the regions, with common boundaries based on the Treasury’s eight standard regions of the Northeast, Northwest, Yorkshire and Humberside, West
Midlands, East Midlands, East Anglia, Southeast, and Southwest.
English masses show little concern about devolution in Scotland and Wales and no demand for devolution for themselves (Curtice 2001, 2006, forthcoming). In November 2004 that was dramatically confirmed by the ‘‘No’’ vote in the Northeast regional referendum, when the voters in the Northeast region rejected the government’s proposals for an elected regional assembly by four to one, despite strong campaigning by the deputy prime minister in this solidly Labour region.
The rejection of the government’s proposals is not evidence that that there is little concern about the devolution process, rather it is evidence that the governments proposals for regionalisation were unacceptable.
Prof. Hazell offers us some alternative roads forward and looks at the support both in elite circles and in the general public and the likelihood that any of them may be adopted.
An English Parliament which has low support and an English parliament would risk being as overburdened as Westminster and equally remote. More on this later
English votes on English laws which has good support 60% in England and 50% in Scotland which might be because it was Conservative party policy
English independence which has negligible support. Hard to envisage England unilaterally declaring independence from rest of the United Kingdom
Decentralize government of England regional assemblies
Hazell claims this has a 25% support with the public, considering the only area that was allowed a referendum; the NE rejected the proposals by a 4/1 margin I cannot see how this figure can be supported, opinion polling perhaps, but that ignores the NE result which showed the polling to be totally out of touch with the real answer at the referendum. And a point Hazell makes later on the issue of Local mayors.
Administrative regionalism
This is regionalisation by the back door ie. Regional chambers exist, and powers and functions slowly growing and of course is Labour party policy with little public knowledge.
City regions
this has minimal support and apparently need not cover whole of England
Revive local government
Politicians all pay lip service; no party has strong proposals Public seem to share some of national politicians’ mistrust of local government competence
Elected mayors
Low. Very little support among local councillors High in opinion polls, less when tested in local referenda Might also be linked to city regions.
Having posed his questions the professor now attempts to answer them;
An English Parliament
An English parliament would appear to be a neat solution to the fundamental asymmetry in the devolution arrangements. It would create a federation of the four historic nations of the United Kingdom, each with its parliament enjoying significant devolved powers.
But it is one thing to create such a federation, quite another to make it work. The fundamental difficulty is the sheer size of England by comparison with the rest of the United Kingdom. England, with four-fifths of the population, would be hugely dominant.
On most domestic matters the English parliament would be more important than the Westminster parliament. No federation has operated successfully where one of the units is so dominant.
I find these arguments to be less than compelling, of course the English parliament would be more important on domestic issues than Westminster, that is the idea behind devolution in the first place. Is the Scottish parliament not more important than Westminster on domestic issues.
If the size issue is important and means the new federation would not work then how are we to understand the EU were Germany with 82.5 million and France with 59.9 million massively outnumber Malta with 398,534 or Cyprus with 780,133. So how is it that an English parliament would unbalance a proposed UK federation when this does not seem to matter at the EU level.
Professor Hazell does make one good point about an English Parliament here that he seems to dismiss on other points and that is; “Perhaps because of this lack of elite support, mass support for the idea of an English parliament remains low and shows no sign of increasing.†Not only is there no elite political support, but this follows through into the main stream media, there is also no coverage for an English parliament, in fact the only real coverage is for regionalisation regional assemblies.
English Votes on English Laws: Westminster as a Proxy for an English Parliament
In contrast, English votes on English laws is a proposition that does command some
elite support and considerable mass support. Polling data consistently show that
between 50 and 60 percent of people in England agree that Scottish MPs should no
longer be allowed to vote on English laws now that Scotland has its own parliament
It seems only logical and fair, since English MPs can no longer vote on matters devolved to Scotland. Even a majority of Scots support restricting the voting rights of Scottish MPs in this way (Curtice 2001, 234). But the difficulties of implementing such a policy seem insuperable, at both a technical and a political level.
Proffor Hazell says; The technical difficulty is identifying those English laws on which only English MPs would be allowed to vote Strictly speaking there is no such thing as an English law, in the sense of a Westminster statute that applies only to England.
That is a point, however it would be quite feasible to note which particular laws did not apply to Scotland because that power had been devolved to the Scotish parliament.
On the political front Hazell sees even more problems;
“Proponents of English votes on English laws tend to underestimate just what a huge change would be involved. It would create two classes of MP, ending the traditional reciprocity whereby all members can vote on all matters. It would effectively create a parliament within a parliamentâ€
Well yes of course it would be a huge change, but then the problem has been brought about by the devolution process itself a huge change, which has created a problem in that Scottish MPs can vote on proposals which have no affect on their own constituents. So we already have two classes of MP`s those that are accountable and those that are not.
The U.K. government might not be able to command a majority for its English business, leading to great political instability.
I do not see this as a great problem if not enough English MP`s are prepared to vote for a policy that only affects England then that policy fails.
English votes on English laws would suddenly become a critical issue if (as
may happen) after a future election Labour formed a government with a narrow
majority and depended on Scottish and Welsh MPs to get its legislation through.
Well this is exactly the point is it not, if the Labour party has to rely on Scots and Welsh MP`s voting for something that does not affect them then that is also wrong.
Hazlle says that :
The Conservatives have fought two elections on a platform of English votes on English laws (in 2001 and 2005) and have tried to arouse the English. The English have failed to respond