managing regional development in scotland the sda as agency of change henrik halkier, aalborg...
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MANAGING REGIONAL DEVELOPMENT IN SCOTLAND
The SDA as Agency of Change
Henrik Halkier, Aalborg University, Denmark – [email protected]
MANAGING REGIONAL DEVELOPMENT IN SCOTLAND
The SDA as Agency of Change
1. Setting the scene
2. Reviewing three phases of Agency origins developments endings
3. The SDA and beyond
Conclusions and perspectives
Henrik Halkier, Aalborg University, Denmark – [email protected]
PRE-DEVOLUTION SCOTLAND
From the 1970s towards the 1990s
Socio-economic context industrial restructuring disadvantages UK region dual identities
0
10
20
30
40
50
1970 1973 1976 1979 1982 1985 1988
Conservative
Labour
Liberal
SNP
PRE-DEVOLUTION SCOTLAND
From the 1970s towards the 1990s
Socio-economic context industrial restructuring disadvantages UK region dual identities
Governance decentralisation via
Scottish Office devolution remain on
agenda Labour dominance,
Conservative erosion, volatile nationalism
The SDA 1975-1991CONTRASTING
INTERPRETATIONS
External revolution Internal evolution
Origins
Early 1970s
Development
1975-88
Endings
1988-91
The SDA 1975-1991CONTRASTING
INTERPRETATIONS
External revolution Internal evolution
Origins
Early 1970s
Anti-nationalist opportunism by LAB
Development
1975-88
'Thatcherisation' from 1979 onwards
Endings
1988-91
Symbolic termination by hostile CONS
The SDA 1975-1991CONTRASTING
INTERPRETATIONS
External revolution Internal evolution
Origins
Early 1970s
Anti-nationalist opportunism by LAB
Superior new bottom-up policy paradigm
Development
1975-88
'Thatcherisation' from 1979 onwards
Learning-by-doing change of profile and policies
Endings
1988-91
Symbolic termination by hostile CONS
Merger in principle sensible, details misguided
Three phases of Agency reviewed:ORIGINS
Organisational consensus, diverging prioritiesHighland Board as example: finance, advice, infrastructuretrade unions & Scottish Labour: public investmentlocal authorities and business: advice, promotion, infrastructure
Three phases of Agency reviewed:ORIGINS
Organisational consensus, diverging prioritiesHighland Board as example: finance, advice, infrastructuretrade unions & Scottish Labour: public investmentlocal authorities and business: advice, promotion, infrastructure
Late conversion by unionist partiesSNP landslide in February 1974CONS opposition goes first: Scottish Development fundLAB government proposal: HIDB + investment + promotion
Three phases of Agency reviewed:
CORPORATE DEVELOPMENTS
Strategic discourse more continuities than change commercial before Thatcher symbolic reordering 1979 discursive adaptation
Quote-unquote:
Pre-1979:Long-term profitable public investment
Early 1980s:Profitable public investment
Late 1980s:Venture capital market failure
Three phases of Agency reviewed:
CORPORATE DEVELOPMENTS
Strategic discourse more continuities than change commercial before Thatcher symbolic reordering 1979 discursive adaptation
Development resources absolute real-term stagnation private co-funding increase
0
50
100
150
200
76/77 80/81 84/85 88/89
Government funding
Private funding
Gross expenditure
SDA financial resources£mio, real terms, 1985/85
Three phases of Agency reviewed:
CORPORATE DEVELOPMENTS
Strategic discourse more continuities than change commercial before Thatcher symbolic reordering 1979 discursive adaptation
Development resources absolute real-term stagnation private co-funding increase relative importance growing
0
50
100
150
200
76/77 80/81 84/85 88/89
Government funding
Private funding
Gross expenditure
SDA financial resources£mio, real terms, 1985/85
0
100
200
300
400
500
76/77 79/80 82/83 85/86 88/89
SDA GB policies
Regional policies in Scotland£mio, real terms, 1985/86
Three phases of Agency reviewed:
CORPORATE DEVELOPMENTS
Strategic discourse more continuities than change commercial before Thatcher symbolic reordering 1979 discursive adaptation
Development resources absolute real-term stagnation private co-funding increase relative importance growing project-driven organisation delivery decentralising
0
50
100
150
200
76/77 80/81 84/85 88/89
Government funding
Private funding
Gross expenditure
SDA financial resources£mio, real terms, 1985/85
0
100
200
300
400
500
76/77 79/80 82/83 85/86 88/89
SDA GB policies
Regional policies in Scotland£mio, real terms, 1985/86
Three phases of Agency reviewed:POLICY
DEVELOPMENTS
0
50
100
150
200
250
300
350
19761978198019821984198619881990New invested firms
Total gross expenditure
SDA investment activityIndex 100 = pre-Thatcher averageIndustrial investments
increased activity levels intensified pre-investment
appraisal public-private con-investment
Three phases of Agency reviewed:POLICY
DEVELOPMENTS
0
50
100
150
200
250
300
350
19761978198019821984198619881990New invested firms
Total gross expenditure
SDA investment activityIndex 100 = pre-Thatcher averageIndustrial investments
increased activity levels intensified pre-investment
appraisal public-private con-investment
Inward investment increasing priority more proactive/selective grant/promotion integration
Three phases of Agency reviewed:POLICY
DEVELOPMENTS
Sectoral initiatives & advisory services increasing priority gradual diversification more proactive/selective standard-service off-loading
Three phases of Agency reviewed:POLICY
DEVELOPMENTS
Sectoral initiatives & advisory services increasing priority gradual diversification more proactive/selective standard-service off-loading
Infrastructure & environment decreasing priority from mid-1980s from 'black spots' to 'bright lights' property portfolio partly privatised
Three phases of Agency reviewed:POLICY
DEVELOPMENTS
Dominant trends policy continuity/expansion increasingly proactive/selective new policies prevail over inherited
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20
40
60
80
100
120
140
76/77 79/80 82/83 85/86 88/89
New policies Inherited policies
Three phases of Agency reviewed:POLICY
DEVELOPMENTS
Dominant trends policy continuity/expansion increasingly proactive/selective new policies prevail over inherited
Tangible high-profile exceptions ? privatisation of industrial property inward investment & high-tech bias
0
20
40
60
80
100
120
140
76/77 79/80 82/83 85/86 88/89
New policies Inherited policies
Three phases of Agency reviewed:ENDINGS
A Conservative change of heart ?1987 administrative/political praise 1988 proposal via Thatcher short-cut
Limited opposition ?Labour: local authority exclusionUnions/business cautiousness:• more emphasis on training ?• loss of strategic focus ?
Three phases of Agency reviewed:ENDINGS
A Conservative change of heart ?1987 administrative/political praise 1988 proposal via Thatcher short-cut
Limited opposition ?Labour: local authority exclusionUnions/business cautiousness:• more emphasis on training ?• loss of strategic focus ?
Termination or take-over ?
Ideology against adept Agency ?
Party-political advantages• Labour wrong-footed• side-lining of local authorities• ministerial credentials
Preferential regionalism Mark II• training gets Scottish dimension
THE SDA AND BEYOND Conclusions and Perspectives
The dual face of the politics of regional policy ideology: limited public-private changes despite rhetoric territorial: consensus about 'preferential regionalism'
THE SDA AND BEYOND Conclusions and Perspectives
The dual face of the politics of regional policy ideology: limited public-private changes despite rhetoric territorial: consensus about 'preferential regionalism'
From SDA to Scottish Enterprise at international forefront of policy development combining resources and strategic vision benevolent political environment:
arm's-length administration, Tory pragmatism symbol of commitment to Scotland
THE SDA AND BEYOND Conclusions and Perspectives
The dual face of the politics of regional policy ideology: limited public-private changes despite rhetoric territorial: consensus about 'preferential regionalism'
From SDA to Scottish Enterprise at international forefront of policy development combining resources and strategic vision benevolent political environment:
arm's-length administration, Tory pragmatism symbol of commitment to Scotland
THE SDA AND BEYOND Conclusions and Perspectives
The dual face of the politics of regional policy ideology: limited public-private changes despite rhetoric territorial: consensus about 'preferential regionalism'
From SDA to Scottish Enterprise at international forefront of policy development combining resources and strategic vision benevolent political environment:
arm's-length administration, Tory pragmatism symbol of commitment to Scotland
THE SDA AND BEYOND Conclusions and Perspectives
The dual face of the politics of regional policy ideology: limited public-private changes despite rhetoric territorial: consensus about 'preferential regionalism'
From SDA to Scottish Enterprise at international forefront of policy development combining resources and strategic vision benevolent political environment:
arm's-length administration, Tory pragmatism symbol of commitment to Scotland