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Jury still out on whether devolution has proved itself, says ex-Welsh Government Minister

By Mark Mansfield
Andrew Davies at Cardiff Central station, next to a plaque he unveiled as a minister

Martin Shipton

One of Welsh Labour’s leading proponents of devolution at the referendum in 1997 which narrowly endorsed the creation of what is now the Senedd says the jury is still out on whether devolution has proved itself.

Andrew Davies worked closely with then Secretary of State for Wales Ron Davies and his deputy Peter Hain when they made the case for the policy.

At the first National Assembly election in 1999, he designed the candidate selection process for Labour and was elected himself to represent Swansea West. He went on to serve as Business Manager, Chief Whip and Economy Minister.

He stood down from what was the National Assembly in 2011, later serving for six years as Chair of the then Abertawe Bro Morgannwg University Health Board.

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'Chaotic'

Interviewed by ITV Wales political editor Adrian Masters on the Face to Face programme, Mr Davies described the birth of Welsh devolution as chaotic. He said: “There was very little preparation. Unlike in Scotland where it was effectively a done deal, with people saying they’d been waiting for devolution for years, in Wales it was by the seat of our pants that we got through the referendum. Then the assumption was that Ron Davies would be the leader, and then of course he resigned. That led to the battle between Rhodri Morgan and Alun Michael. In a way, you couldn’t design a worse introduction to devolution, I always said as the Chief Whip and Business Manager that I had an NVQ in ducking and diving.”

Asked whether he had enjoyed his time as an Assembly Member and a Welsh Government minister, Mr Davies said: “It was a huge privilege. As I’ve often said - no one will ever do what we did, which was to establish Wales’s first elected legislature. It was also very demanding, certainly in the first couple of years. I want to pay tribute to the work of Dafydd Elis-Thomas [the Assembly’s first Presiding Officer] and Rhodri Morgan, who really did help calm things down, and establish the credibility and legitimacy of the Assembly.”

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'Bedevilled'

Asked whether he thought devolution had proved itself and lived up to what he had expected, Mr Davies replied: “I have to say I think the jury is pretty much still out on this. I think in a way what Ron Davies said about devolution - that it was a process and not an event - has bedevilled devolution. It’s almost like, it’s better to travel than arrive.

“But if you compare the powers the Assembly has had from the beginning, which have been augmented since, comparing other parts of Europe with regions and provinces, it’s a pretty strong series of powers. In health and education, for example, to a large extent the Welsh Government has autonomy. So blaming the constitutional settlement - which was there right from the beginning, with people saying ‘it’s not enough, it’s not strong enough’, my view was always, we have to make it work. And as a minister I actually put major pieces of legislation on the statute book - the Transport for Wales Act 2006, and also the Railways Act 2005. It was powers for a purpose, for me.”

Disappointed

Asked whether, given what he had said, he was disappointed by devolution, Mr Davies said: “I suppose that’s really why I’ve been thinking and writing so much about the economy and other aspects like the health service … I just feel we need a much more open debate in Wales. In fact, that’s my major critique, I think.

"We have what I call a client state where there’s too much secrecy. There’s not enough openness and transparency. So many organisations and individuals in Wales depend on funding and patronage from the Welsh Government, and I think civil society needs to be stronger and more independent, and I think there needs to be more transparency and accountability.”

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15 comments

David Richards

Its Andrew Davies' own party -Labour - which has been in power in Wales since 1999......and thats been the problem.

Reply
hdavies15

He was part of a leadership group that shaped the immediate future ... one based on dependency. He mentions organisations dependent on the Bay regime, but it goes further than that. There's a chain of dependency up to Westminster/Whitehall and in the past out to Brussels. What did successive Labour regimes do with funds especially the "special" EU funds? Blew them on misdirected priorities which contributed to the Brexit decision especially among left behind valley communities.

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Rob Thomas

To say devolution is “the problem” because Labour has won successive elections is to misunderstand democracy itself. Devolution gives Wales the right to choose its own path. If the people of Wales have repeatedly elected Labour, that’s a democratic outcome—not a structural failure. The real question isn’t who governs, but whether Wales has the tools and respect to govern well.

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Unice Thornberry

The runaway success of Devolution is obvious.

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Rob Thomas

Devolution isn’t on trial—it’s a democratic response to centuries of centralised control. Since 1999, Wales has gained a distinct voice in shaping its own future, from health and education to cultural policy. While challenges remain, especially under Westminster’s shadow, the question isn’t whether devolution has “proved itself,” but whether it’s been given the respect and resources to thrive. Wales is no longer England’s oldest colony—it’s a nation asserting its place in the union.

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John Glyn

I agree with Andrew. So called ‘Welsh Labour’ has now governed Wales uninterrupted for 26 years. But the Welsh Parliament’s legitimacy in the eyes of the public still continues to be in the balance. Voter turnout is consistently low. But why is this? This is essentially because of Welsh’s Labour utter failure, refusal, to take part in the nation building opportunity which devolution afforded. Because of Welsh Labour’s refusenik negativity the project has still not really got off the ground at all. And why is this you might ask? Essentially because Welsh Labour is still shot through with a debilitating, paralysing, psychologically enslaving, deeply ingrained, British nationalism. Indeed the Welsh Labourites are perhaps the greatest grovelers of all. Deliberately denied any in-depth knowledge of their own history at school most of them are now thoroughly Britishized – the sad products of a people oppressed for many centuries, suppressed, mentally colonized – hence now supine, sycophantic, and irredeemably servile.

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Rob

Devolution is not the problem, the problem is Labour. If Labour are failing to deliver then you vote them out (Which looks likely to happen next year). No one country questions their right to autonomy so why do we do so in Wales? Labour members who question devolution are the worst, because they are the problem.

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Paul ap Gareth

The Jury is still out on whether UK membership has proven any benefit to Wales.

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Keith Parry

The Jury has returned a verdict. United Kingdom government of Wales is a total failure.

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Y Cymro

Devolution hasn't failed Wales. Both Labour and Conservatives have. Less former minister Andrew Davies forget being part of a government that's controlled Wales for 26 years. In 1997 Tony Blair and New Labour deliberately designed the then Welsh Assembly to fail. The evidence: Leading up to the 1997 referendum, we had the likes of Neil Knock, Llew Smith and others hostile influence those in government the type of devolution Wales had. And New Labour later even admitted that they had those against devolution in mind what responsibilities to devolve to Cardiff Bay from Westminster. From the beginning Tony Blair and New Labour had an Anti-Wales agenda. Remember Blair referring to those f@#*"&? Welsh after the close referendum result in 1997. Blair admitted later in his memoir that he was not a great enthusiast of Welsh devolution. So the evidence is there for all to see. Devolution was not meant for Wales. Labour tried its hardest to strangle it at birth. This is why he was angry. He expected the Welsh to say no not yes. What Labour offered Wales: We had a Welsh Assembly with only 60 members A First Secretary parachuted in by Labour central office against the wishes of Labour members. Wales had limited powers. No fiscal levers. The Assembly was located in what could be described as a multistorey carpark in Crickhowell House until the present Richard Rogers Senedd Cymru building was constructed and opened in 2006. Note: The Welsh Tories were not only hostile to devolution before, during and after, they also didn't want an Assembly building and thought the inadequate Crickhowell House was fine. This wasn't a party thinking of cost to the Welsh taxpayer but likely done because a designated building to them cemented devolution. Devolution comparisons: In 1997 both Scotland & Northern Ireland had First Ministers and a Parliament with 127 MSPs, and a Northern Ireland, a legislative Assembly with 108 MLSs , until reduced to 90. But even then, Northern Ireland still had more 30 more politicians than Wales, a country twice the size and twice the population until 2020 when the Senedd voted to change the name of the Assembly to Senedd Cymru/Welsh Parliament, and to increase the Senedd size from 60 to 96 MSs ready for the 2026 Senedd election. In reality Welsh devolution began in 2011 not 1999 after the successful legislative Assembly referendum thanks to Plaid Cymru's One Wales coalition deal with Welsh Labour. Up to that point Westminster still ruled Wales by proxy, especially using the New Labour LCO system (Legislative Competent Order) where any legislation had to pass through four layers of government to become law. So Whitehall affected Wales greatly but received no blame for their part played in the running of Wales. See, it would only take one layer, the Welsh Secretary, Westminster or House of lords to reject Welsh law and it would be dead unless sent back to the Welsh Government be changed. Only Wales was made to jumped through hoops. Whitehall only has two layers of government to scrutinise legislation. So back to my opening remarks. Devolution hasn't failed Wales. Both Labour and Conservatives have. And it doesn't help the constant refusal to devolve powers and levers requested that could benefit and transform Wales.

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Rob Thomas

So let's get this straight. What you are saying is Wales does not have the right to decide what its priorities should be and that Westminster should? I believe Your critique misses the mark. Devolution isn’t about swapping one bureaucracy for another—it’s about bringing decision-making closer to the people of Wales. If Cardiff has a concentration of political activity, that reflects population and infrastructure, not a betrayal of devolution. And if Labour’s support varies across Wales, that’s a matter for voters—not a reason to undermine the principle of self-governance. Devolution empowers Wales to choose its own path. The real trial isn’t of the model, but of whether those in power use it wisely.

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Undecided

Wales certainly has the right to decide its priorities; but after 26 years it also has to take responsibility for them. There the current model has palpably failed. Many in the Valleys, rural west and north Wales see little or no benefit. Whether it’s health, education, transport or just about anything the story is the same. The result is Farage - and if it wasn’t him it would be someone else.

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Rob

But that’s exactly what elections are for. Labour has failed Wales as your correctly point out. Therefore it’s up to the voters to hold them to account, and all the signs suggest they are going to be voted out next year. Even if someone votes Reform, it doesn’t automatically mean they oppose devolution. Frustration with a government is not the same as rejecting the right of Wales to govern itself. After all, many voters in northern England are angry with Westminster, that doesn’t mean they would prefer to be governed from Brussels.

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Gwyn Hopkins

Andrew Davies questions whether devolution in Wales has proved itself. One could equally well question whether the political set-up in Westminster has proved itself. For Wales it certainly hasn't, considering the vast resources/wealth taken from it over centuries, the repeated discrimination against Wales (compared to Scotland) and its permanent position as bottom of the 4 UK nations in GDP per capita. Moreover, in August 2025 the UK's debt was £2,900,000,000,000 (£2.9 tr). Does this suggest success for the UK parliament?

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James Edwards

Free Wales.

Reply

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To say devolution is “the problem” because Labour has won successive elections is to misunderstand democracy itself. Devolution gives Wales the right to choose its own path. If the people of Wales have repeatedly elected Labour, that’s a de...

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