The Initiation of Local Authority Referendums: Participatory Momentum or Political Tactics? The UK Case

Abstract

Local authority-initiated referendums have been a cornerstone of the UK Government's drive to improve citizen participation at the local level. Authorities have increasingly made use of local referendums since the 1990s, but little research has been carried out to explain and qualify this surge. Focusing on a case study of a recent referendum in Greater Manchester, and comparing it to other significant local referendums, this article analyses their initiation according to Morel's (2007) functional model. Findings reveal that referendums were most often held to smooth over divisions within local parties or assemblies, to legitimate a controversial decision or to weaken political adversaries. Local authorities therefore never employed referendums as genuine participatory tools, but rather as a pragmatic and tactical solution to a given political problem. Consequently, the long-term impact of local referendums on citizen participation remains questionable.

Key Words:

• Referendum
• local authority
• turnout
• participation
• initiation

Notes

The term ‘national’ refers to UK-wide and devolution referendums (Scotland and Wales 1979 and 1997, Northern Ireland 1973 and 1998, North-East England 2004). Some devolution referendums, in particular the North-East one, are not national in the strictest sense of the term but are treated as such since they were formally initiated by central government. They are consequently not included in this study.

These referendums can also be initiated following a petition signed by 5% of the electorate.

Interview 1 was conducted and recorded at Manchester Town Hall and lasted 52 minutes, 6seconds. Interview 2 was conducted and recorded at the South Manchester Liberal Democrat office and lasted 19 minutes, 46 seconds.

The AGMA is the unelected assembly representing the 10 Greater Manchester boroughs. Itsexecutive is made up of the boroughs' council leaders. The AGMA and the GMPTA are subsequently referred to as the Greater Manchester authorities.

Rallings and Thrasher's (2009) assertion that the referendum was held “following pressure from MART” is therefore partially inaccurate.