Featured Post from Aston University

What the Basque Country tells us about 'levelling up' | Aston Angle

Feb 16, 2022

4 min

Dr Caroline Gray



What the Basque Country tells us about using local governance to level up

By Dr Caroline Gray

Lecturer in Politics and International Relations

School of Social Science and Humanities


January 2022


In a recent interview on his vision of ‘levelling up’, Michael Gove, Secretary of State for Levelling Up, Housing and Communities, cited the Basque Country as one example of where ‘things have been done well’. The Basque Country, an industrial region of northern Spain with a population of just over two million, is widely admired for having undergone a remarkable, industry-focused economic transformation since it was hit by the decline of heavy industry in the 1980s. It is now one of the leading regions in Europe not only in terms of GDP per capita, but also in having a low percentage of population at risk of poverty or social exclusion. Within Spain itself, critics usually attribute this to the way the Basque fiscal autonomy model works, enabling the region to keep more of its own wealth to itself than other similarly prosperous regions in Spain – a form of internal ‘levelling up’ at the expense of other regions. This, however, is not the only contributing factor to the Basque Country’s economic transformation. Effective governance has also played a key role.


What takeaways from the Basque experience might be relevant to levelling up in the UK and the devolution framework needed to facilitate it? Through my research on the Basque governance systems, I’ve discovered that some of the most valuable lessons relate to how multi-level governance works within the Basque region itself and how that contributes to economic and social transformation. Devolution does not stop with the powers devolved to regional governments or authorities; the relationship between different stakeholders and layers of governance within a region or locality is equally important.


If the UK government wants to learn from what the Basque Country has done well, it should consider the following:


1. Devolution beyond metropolitan areas needs to be flexible and adaptable to place-based specifics


In his July 2021 Levelling Up speech, Boris Johnson announced that levelling up would involve extending devolution beyond cities with new deals for the counties. The government must stick to the commitment it made then to shape new devolution deals with local input, avoiding one-size-fits-all approaches.


The Basque Country provides valuable evidence for why it’s beneficial to shape governance approaches to the economic geography of an area. As one of Spain’s 17 regions called ‘autonomous communities’, the Basque Country is, in turn, divided into provinces (Araba-Álava, Bizkaia and Gipuzkoa) and municipalities. Counties, which don’t have an administrative body, but which do house county development agencies, make up an additional level between the provinces and municipalities. The economic activity of two of the provinces (Araba-Álava and Bizkaia) is typical of metropolitan areas in that it is centred heavily on their capital cities (Vitoria and Bilbao, respectively), where the provincial councils are based. However, in the third, Gipuzkoa, economic activity is more distributed across different hubs in the province. As a result, in Gipuzkoa, the county development agencies, created in the late 1980s, have acquired a particularly important role, as interviewees from the Basque Institute of Competitiveness explained to me. The counties map particularly well onto the different industrial areas in the province, thanks to the fact that they were designed with the bottom-up input of municipal leaders working together with the provincial council. The county development agencies have, in turn, become a key channel via which the provincial council in Gipuzkoa can reach SMEs more easily, as they are closer to the firms. Such local networks are particularly important in non-metropolitan areas where economic activity can be more dispersed.


This is why the UK government must make sure any new devolution framework it designs is flexible enough to allow for local input and adaptations to place-based considerations.


2. Bottom-up, collaborative dynamics are essential to the design and implementation of placed-based strategies


Basque economic development has undoubtedly benefitted from the fact that the regional government draws upon input from different levels of administration and a range of other public and private stakeholders in the region when designing its industrial policies. Experiments in collaborative governance have become increasingly innovative over the years, not only at regional but also provincial and local level, designed to reach beyond the largest firms and to engage wider society. The county development agencies in Gipuzkoa, for example, used to provide services to SMEs in an essentially one-way direction – for example, advising them on how to apply policy – but have since evolved more into facilitators of networks for cooperation and mutual learning among public and private actors at county level. This not only facilitates more efficient implementation of regional policies, but also channels local feedback upwards into the policy-making process, adding value. Collaboration among different tiers of governance and different areas, rather than competition, has been the goal of such approaches.


Therefore, the UK government needs to reconsider the increasingly competitive dimension of current devolution arrangements. Having areas compete against one another for centrally controlled, often short-term pots of money doesn’t facilitate the formation of robust, collaborative partnerships that could ultimately add value and increase efficiency.


Finally, institutional stability is important. From the Regional Development Agencies (RDAs) to the Local Enterprise Partnerships (LEPs), which are now under review, there has been frequent chopping and changing in the institutions and policies meant to tackle the UK’s place-based inequalities in recent decades. The Basque Country shows what can be achieved with a more stable, longer-term institutional and policy framework and vision. If it is to have a meaningful impact in tackling inequalities, the Levelling Up White Paper must provide the basis for a longer-term devolution framework that goes well beyond the current government term, with a clear allocation of resources and responsibility.

Connect with:
Dr Caroline Gray

Dr Caroline Gray

Lecturer in Politics and Spanish

Dr Gray specialises in the politics of Spain and wider Europe, focusing on territorial politics and party systems.

Basque CountryCataloniaSpanish CultureSpanish PoliticsEuropean Politics

You might also like...

Check out some other posts from Aston University

2 min

The Lost Girls of Autism – New book from Aston University emeritus professor Gina Rippon examines autism in women

The Lost Girls of Autism is published on 3 April 2025, coinciding with Autism Awareness Month in April In the book, Professor Rippon explores the ‘male’ history of autism, and why autism in women has been misunderstood and ignored Professor Rippon will give a free public lecture on the book at Aston University on 6 May 2025. Gina Rippon, professor emeritus of cognitive neuroimaging at Aston University Institute of Health and Neurodevelopment (IHN), has written a new book, entitled The Lost Girls of Autism. The book will be released on 3 April 2025, coinciding with Autism Acceptance Month in April. It has the subtitle ‘How Science Failed Autistic Women and the New Research that’s Changing the Story’. Historically, doctors believed that autism was a male condition, and simply did not look for it in girls and women. This has meant that autistic girls visiting a doctor have been misdiagnosed with anxiety, depression or personality disorders, or are missed altogether. Many women only discover they have the condition when they are much older, missing decades of support. In more recent years, it has become apparent that girls and women with autism have different traits and behaviours to boys and men, and are more likely to hide autistic traits to fit in – known as camouflaging. In The Lost Girls of Autism, Professor Rippon explores the emerging science of female autism, and examines why it has been systematically ignored and misunderstood for so long. Professor Rippon will give a free public lecture about her book on Tuesday 6 May 2025 at 18:00 BST at Aston Business School. Visit https://www.eventbrite.co.uk/e/the-lost-girls-of-autism-an-audience-with-author-gina-rippon-tickets-1304020734119 for more information and tickets. Copies of the book will be on sale at the event. Professor Rippon said: “This book reveals how a ‘male spotlight’ problem has biased many aspects of the autism story, from what autism is, to how we recognise it, and even how brain imagers like me search for answers. It shows how and why autistic women have been unrecognised, overlooked and unsupported. It shines a new light on how the story is changing and how we are now beginning to recognise the full spectrum of the autistic experience. It is for anyone with an interest in autism in all its presentations.”

3 min

How authorship language helped catch a domestic terrorist – new podcast

In the latest episode of Writing Wrongs, hosts Professor Tim Grant and Dr Nicci MacLeod interview Dr Isobelle Clarke to unravel a case where forensic linguistics helped track down and convict a dangerous individual. Episode three, Imposters Tending to the Wild with Dr Isobelle Clarke, dives into the chilling case of Nikolaos Karvounakis, a self-proclaimed anarchist who planted a viable explosive device in Princes Street Gardens, Edinburgh, in 2018. Karvounakis, a Greek national, evaded capture for years, hiding behind online anonymity and extremist rhetoric. However, forensic linguists stepped in to analyse his anonymous blog posts, revealing patterns in his language that ultimately helped Police Scotland link him to the crime. The case not only demonstrates how linguistic evidence can be a powerful forensic tool but also raises crucial questions about the role of language analysis in modern terrorism investigations. On 11 January 2018, a suspicious cardboard box was discovered in a public seating area in Edinburgh’s Princes Street Gardens. After a controlled explosion, investigators determined the device could have caused serious harm had it detonated. With no immediate leads, the investigation stalled - until an anonymous blog post surfaced, claiming responsibility for the attack. The post, written in both English and Spanish, was linked to an eco-anarchist group called Individualists Tending to the Wild, a Mexican-based extremist organisation advocating violent action against technological progress. Crucially, the post included an image of the bomb’s interior, a detail only the perpetrator or law enforcement could have known. Police Scotland sought the expertise of Professor Tim Grant, who analysed the text, producing a linguistic profile that suggested the writer was neither a native English nor Spanish speaker - but rather someone influenced by another language entirely. Two years later, police identified Nikolaos Karvounakis as a suspect. Using comparative authorship analysis, Professor Tim Grant compared his online writings - including song lyrics from his rock band - to the manifesto. By dissecting word patterns, grammatical structures and stylistic quirks, he established that Karvounakis was the likely author. This evidence -alongside forensic meteorology, which linked photos of clouds in Karvounakis’ blog posts to the same weather conditions on the day of the crime - was used to secure a warrant and seize computers containing known writings by Karvounakis. To eliminate inevitable bias that would result from having worked the case for more than two years, Professor Grant invited Dr Isabelle Clarke onto the case as an independent forensic linguist. Using a version of the General Imposters Method, a technique similar to a police lineup but for language, Dr Clarke confirmed that the writing style in the blog post was the closest to Karvounakis’ known writings. Police Scotland put the evidence in the case, including the linguistic evidence, to Karvounakis, and secured a guilty plea. In February 2022, Nikolaos Karvounakis was sentenced to over eight years in prison under the UK’s Terrorism Act. Tim Grant, professor of forensic linguistics at Aston University, said: “The case highlights the growing importance of forensic linguistics in solving crimes, particularly in an age where digital anonymity combines with extremist ideologies. “It also highlights the how different types of language analysis can assist as a case moves through different stages of investigation.” Dr Nicci MacLeod, deputy director of the Aston Institute for Forensic Linguistics, said: “This episode offers listeners a behind-the-scenes look at the forensic methods that expose deception, identify threats and ultimately bring criminals to justice.” Dr Isobelle Clarke, a lecturer in security and protection science at Lancaster University and one of the first graduates from the campus-based MA Forensic Linguistics programme at Aston University, said: “It was great to be back at Aston University talking about the Karvounakis case for the Writing Wrongs podcast. “It’s an interesting case to highlight, as it shows how different types of language analysis can help with police investigations.” Writing Wrongs is available on Spotify, Apple Podcasts and all major streaming platforms. Listeners are encouraged to subscribe, share and engage with the hosts by submitting their forensic linguistics questions. Whether it’s about this case or broader forensic linguistic techniques, Professor Grant and Dr MacLeod welcome inquiries from listeners.

3 min

Best-selling author Kate Summerscale joins Writing Wrongs to explore true crime and justice

The true crime podcast Writing Wrongs continues its exploration of language and justice with a special bonus episode featuring best-selling author and historian Kate Summerscale. Kate is an award-winning historian, journalist and best-selling author known for her meticulous research into historical true crime cases. Her book The Suspicions of Mr. Whicher won the Samuel Johnson Prize for Non-Fiction and was adapted into a major ITV drama. Her latest book, The Peep Show: The Murders at 10 Rillington Place, revisits the infamous Christie case, shedding new light on the victims’ lives, the social conditions of post-war Britain and the power of the press in shaping public perceptions of crime. In this episode, hosts Professor Tim Grant and Dr Nicci MacLeod explore a fresh perspective on the Rillington Place murders, the wrongful execution of Timothy Evans and how forensic linguistics has helped uncover the truth in criminal cases. Following on from the first episode of the series, which examined the Timothy Evans case and the origins of forensic linguistics, this conversation with Kate Summerscale provides fresh historical insights into one of Britain’s most infamous miscarriages of justice. The episode revisits the horrifying crimes of John Christie, whose calculated murders led to one of the most infamous miscarriages of justice in British history. The wrongful conviction and execution of Timothy Evans cast a long shadow over the UK’s legal system and played a pivotal role in the eventual abolition of the death penalty. Through expert discussion, the episode examines how Evans’ case became a turning point for criminal justice reform. The conversation also looks at the role of the media in shaping crime narratives. Sensationalist reporting during the Rillington Place murders fuelled public perceptions, sometimes distorting the truth in favour of dramatic storytelling. The episode draws comparisons between 1950s tabloid journalism and today’s true crime media, examining how crime reporting has evolved - and the ethical challenges it still faces. A deeply unsettling aspect of this case is its gendered nature. The majority of John Christie's victims were vulnerable women, many facing financial and social instability. The episode delves into how structural inequalities, from the lack of legal abortion to economic dependence, made women more susceptible to predatory figures like Christie, a pattern that remains relevant in crime analysis today. Finally, the episode scrutinises government complicity in covering up a miscarriage of justice. The Brabin Inquiry, launched in the 1960s, sought to reexamine Evans’ conviction but delivered a highly controversial conclusion, failing to fully exonerate him. The discussion highlights how political interests and legal reputation management influenced the case’s outcome, leading to Evans’ eventual posthumous pardon - but not a full legal exoneration. Tim Grant, professor of forensic linguistics at Aston University, said: “It was wonderful to have Kate on Writing Wrongs. “Her work challenges the traditional true crime narrative, shifting focus from the murderer to the victims and the broader social structures that allow such crimes to happen. “Her insights in this episode provide a fresh and deeply researched perspective on a case that still haunts British legal history.” Writing Wrongs is available on Spotify, Apple Podcasts and all major streaming platforms. Listeners are encouraged to subscribe, share and engage with the hosts by submitting their forensic linguistics questions. Whether it’s about this case or broader forensic linguistic techniques, Professor Grant and Dr MacLeod welcome inquiries from listeners.

View all posts
Powered by