Metropolitan Merseyside and Greater Manchester: Spatial Issues in Jurisdictional Change Rex Honey* England restructured its local government system in 1974 after decades of hesitancy and eight years of intensive study and debate . Among the aspects of reform was a fundamental realignment of governing units having spatial expression, especially in the large metropolitan areas where the problems were most severe. As such, the English experience may prove instructive when debating similar reforms elsewhere, in terms both of actual designs and of the processes by which the designs are formulated. Using as its case the LiverpoolManchester conurbation, this paper briefly describes the problems generating reform, then examines the alternative official proposals, and finally seeks to demonstrate how jurisdictional spatial form emerged from the application of diverse organizing principles, filtered through the political process.1 Traditional Jurisdictions Like any rapidly changing society, England suffered from jurisdictional senescence. Its local government structure dated from the late 19th century and was characterized by a division between town * Dr. Honey is Assistant Professor of Geography at the University of Iowa, Iowa City 52242. The author gratefully acknowledges the cooperation and assistance of numerous individuals involved in England's local goverrunent reform or strategically placed to witness the reform. 1 The author deals with the reform in general and the reform process in particular in: "England's New County Map," The Professional Geographer, Vol. 28, No. 1 (Feb. 1976), pp. 50-56; and "Form, Process and the Political Organization of Space," The Professional Geographer, Vol. 29, No. 1 (Feb. 1977), pp. 14-20. 91 92ASSOCIATION OF PACIFIC COAST GEOGRAPHERS and country—the England of the country squire and the dark satanic mill. The primary unit of local government was the county. Separate from the counties, the large cities had their own "county borough" status, forming enclaves within a county. As the character of local government changed and as transportation improved, the differentiation of county and county borough impeded effective operation of local authorities. The adjoining Merseyside (Liverpool) and Greater Manchester metropolitan areas illustrate the worst aspects of the jurisdictional malaise. Their region experienced dramatic growth during the 19th and early 20th centuries, when Liverpool became Britain's second port and both cities became major manufacturing centers. Growth was more horizontal than vertical; the built-up area expanded disproportionately to population increase, and nearby smaller cities shared in the region's industrial and demographic expansion . Commuting increased to the point that political boundaries ceased to enclose a community in the sense of an area where people reside, work, shop, and play. Central cities could not provide sufficient relocation housing, nor could they coordinate the daily flows of people and goods. As of the early 1970's, over a dozen county boroughs and two counties shared jurisdiction in the Merseyside-Greater Manchester region (Figure 1). In terms of political ecology, local authorities could not hope to "internalize externalities." Manchester and Liverpool remained paramount, but nine other cities also qualified as separate employment centers in a 1971 study of commuting flows (Figure 2).2 It was apparent that commutation bore little relationship to jurisdictions, and cross-commuting was prevalent. Within this setting support for change arose. The Royal Commission Proposal The first positive step toward reforming England's local government was the appointment in 1966 of the Royal Commission on Local 2 The Department of Geography of the London School of Economics and Political Science completed the study under contract with Britain's Department of Environment. The identified commuting regions are roughly equivalent to American Standard Metropolitan Statistical Areas. YEARBOOK · VOLUME 40 · 197893 Figure 1. The two counties and 15 county boroughs of metropolitan Merseyside -Greater Manchester on the eve of restructuring. The names and boundaries of Lancashire and Cheshire counties, and of Liverpool and Manchester boroughs, are repeated in Figures 2-4 for comparison. Government in England (often known as the Redcliffe-Maud Commission ). Three years later the Commission offered its recommendations in the form of a majority proposal, accompanied by a minority report from one member who differed substantially over the design of the new system. The Royal Commission attempted to strike a balance among a number of considerations, . , . in particular, the pattern of living, the requirements of...
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