Tensions and cooperation in a multilevel system: Integrating district councils in city government in Bergen

Abstract

This article deals with the fact that central–local relations in a multilevel system often seems to create tensions. A district council reform in the city of Bergen, Norway intended to decentralise authority within the political system of the city ended up with a more centralised relationship between central and local levels. With this observation as a point of departure we categorise decentralisation according to the degree of discretion available for the local level concerning a) objectives and b) means to reach the objectives. By combining these dimensions we identify two types of decentralisation; administrative and political. We claim that all central–local relations will exert features of both types. The mere presence of political bodies is therefore not sufficient to characterise a specific relation as politically decentralised. We conclude the article by discussing some conditions for successful multilevel governance. The conditions draw on experiences from the Bergen district reform, but may have relevance in a wider context.