Multi-level Governance System Research Articles

Assessing the Multi-level Government Response to the COVID-19 Crisis: Italy and Spain Compared

ABSTRACT This article compares the functioning of the intergovernmental systems in Italy and Spain facing the COVID-19 crisis. Combining the public administration literature on policy learning and multi-level governance with that on the institutional collective action framework, this article analyses if and how Italy and Spain have reacted and learned from the external pressures of the pandemic, leading to institutional adjustments to the respective multi-level governance systems in the de-escalation of the first emergency phase. In doing so, the article tests the general hypothesis that the existing political structures and dynamics are a crucial variable to explain the different performance in the pandemic response management. The framework presented in this article could be extended to other countries that follow a federal logic in healthcare provision by public administration scholars who are interested in crisis management studies.

On their own turf? The level-specificity of political trust in multilevel political systems

Although the debate on roots of political trust is ongoing, many scholars agree on the relevance of such political factors as political/ideological distance between citizens and incumbents, political responsiveness and perceptions of performance. Less clear is to what extent such trust evaluations are generalized or specific for the three main political arenas in the European multilevel governance system (EU, national, local). With new data from the Netherlands, we demonstrate that trust in local, national and EU governments (1) is largely level-specific (i.e. is based on citizens’ perceptions of incumbents at a particular governance level) (2) and—at all three levels—is explained by level-specific political factors. This shows that political trust is a subjectively rational evaluation and that citizens develop meaningful political orientations vis-à-vis governments at different levels. Therefore, trust spillovers may be less relevant for explaining political trust in multilevel governance than assumed in previous research as executive governments at local, national and EU levels are judged “on their own turf”.

Multi-level Governance and Internally Displaced Persons Policy in Ukraine: Bridging the Gap between the Global and Local; Governmental and Civic

Abstract This paper examines the means by which Ukraine has sought to address a critical and highly complex unanticipated policy problem. This is the emergence of almost 2 million internally dislocated people (IDPs) within the country in 2014 as a consequence of major, highly violent and continuing border conflict in the country’s South and East. In large part, as a consequence of its financial and administrative circumstances, Ukraine has addressed this situation in what has been a relatively unique manner for the country, relying upon organizations other than a central government ministry to shape and implement critically important policy and service delivery. This paper documents and maps both the extensive array of organizations whose involvement has gradually led to the emergence of what has become essentially a fledgling system of multi-level governance (MLG) which has been critical to the nation’s success in addressing the very difficult and complex policy problems created by massive internal dislocation. In so doing, the paper explores MLG, both theoretically and as it has developed in actuality, in terms of Ukraine’s response to the critical problems posed by the need to address its large and serious IDP crisis. The paper also examines the issue of community adaptation by IDPs and develops two models of community response. In order to do this, the paper relies upon historical review, comparative analysis, personal interviews and the use of expert focus groups.

The persistent dilemma of supranational representation. Framing the weakness of the European Parliament’s representative function in light of the rise of Euroscepticism

ABSTRACT The different crises affecting the EU since 2008 have triggered the politicization of European integration. In this regard, it is of primary importance to understand how the EU representation model works, and what have been the major shortcomings of this function at the supranational level. The article will focus on the role and functioning of the European Parliament (EP), which in this moment in history should arguably be at the centre of the political debate over the EU and its governance. Instead, the EP’s representative function has proven to be rather weak also in this mutating context. Using the theoretical insights of the representative claim theory declined according to the peculiarity of the multilevel governance system, the present article offers a theoretical framework with which to interpret the weaknesses and the dilemma of supranational representation and the role of the EP in this fragile context. Furthermore, the article will suggest that the rise of Euroscepticism can be seen as an unavoidable outcome of the shortcomings of the EU’s representative system.

Compliance with EU Law and Argumentative Discourse: Representing the EU as a Problem-Solving Multilevel Governance System through Discursive Structures of Argumentation

This paper analyzes how, during the Juncker Presidency (2014–2019), the European Commission employed argumentative strategies to address the question of member-states’ compliance with European Union (EU) law. There is a literature gap regarding how European leaders employ argumentative strategies to coax member-states to comply with EU legislation and how those strategies can be associated with multilevel governance designs and problem-solving approaches. Building on van Eemeren and Grootendorst’s (A systematic theory of argumentation. The Pragma-dialectical approach, Cambridge University Press, Cambridge, 2004) pragma-dialectical approach to argumentation, the paper explores what dialectical and rhetorical strategies were employed by the Juncker European Commission to build an argumentative regime where the question of compliance with European Union law is articulated with the representation of the European Union as an efficient multilevel governance system. Starting from the distinction between procedural and operational concepts of problem-solving in multilevel governance polities (Maggetti in Public Administration 97:355–369, 2019), the paper questions whether the Juncker Commission’s arguments on the need to ensure European Union law compliance favor a particular conception of problem-solving in multilevel governance systems. The paper argues that the argumentative strategies employed by the Juncker European Commission in the field of compliance reveal a preference for an operational notion of problem-solving combined with some aspects of a more procedural perspective of problem-solving in multilevel governance polities. The background of this paper is associated with the growing impact that European legislation has on member-states and also with the efforts developed by the Juncker European Commission in discussing how to improve EU regulation to increase compliance with EU law.

Exploring Responses to the Collapse of Devolution in Northern Ireland 2017–2020 through the Lens of Multi-Level Governance

Abstract The system of devolution set up in Northern Ireland in 1999 has proved volatile and unstable. In 2017, the Northern Ireland Executive collapsed, following the resignation of the Sinn Féin, deputy First Minister. For a three-year period, Executive and legislative devolution ceased to operate. The UK Government opted not to impose Direct Rule from Westminster, as happened previously. This article examines the consequences of the absence of a devolved government in the context of the existing system of multi-level governance (MLG). It is contended that mitigating action taken or considered to address the gap in governance can be best understood using an analytical framework drawn from the lens of MLG. A range of interventions, adjustments and interactions occurred involving the remaining levels of MLG. Despite the fall of the Executive and Assembly an amended form of governance continued to function in Northern Ireland.

How can subnational governments develop and deliver distinctive policy agendas?

The ways in which subnational governments develop and deliver distinctive policies is central to our understanding of effective multi-level governance systems. The existing literature focuses on institutional autonomy and the formal powers given to subnational governments but this is only one side of the story. Success also depends on the way in which policy actors deploy their powers, resources and legitimacy. This article presents an empirical analysis of two contrasting attempts to develop distinctive policy frameworks at the subnational level. It demonstrates the importance of looking beyond formal institutional powers and paying attention to policymakers’ political skills and visibility, as well as the strategies and tactics that they employ in deploying formal powers. It highlights, in particular, the need for subnational governments to focus on those issues where they can make a difference and to exploit their nodality within policy networks to foster collaboration with state and non-state actors who bring complementary resources. Points for practitioners A subnational government’s success in pursuing distinctive policy agendas depends on the issues it decides to focus on and the way it chooses to deploy the formal powers and resources available to it. There is little point in investing time and efforts in pursuing issues that national governments are unwilling to cede control over. However, where they are given a degree of autonomy, subnational governments need to exploit their pivotal position in policy networks to foster collaboration with a range of state and non-state actors who bring complementary resources.

State-Level Influences on Community-Level Municipal Sustainable Energy Policies

State and local governments engage each other in a broad set of complicated interdependent relationships. Yet, there is limited research on what these multilevel governance relationships mean for community-focused sustainability. This study applies a transaction cost federalism framework to examine the hierarchical influences of state fiscal support and policy actions on municipal commitments to sustainability at the community-level. An analysis of U.S. cities reveals that state investments in energy programs encourage municipal efforts for incentivized energy efficiency initiatives for local taxpayers. Larger percentages of state funding directed to energy programs lead to stronger municipal commitments to incentivized sustainability programs such as individual grants, direct loans, and tax incentives. The results suggest that stable and supportive multilevel governance systems are key for reducing political transaction costs inherent within vertical systems driven by coercive authority. These findings produce theoretical and practical implications for understanding community-level sustainability within the face of “contested federalism.”

The last mile: Flood risk communication for better preparedness in Nepal

Over the last decade, several flood early warning systems have been established in Nepal, helping reduce the number of people affected and killed by floods. However, there are still challenges in communicating flood warning to the most vulnerable. The unavailability of real-time monitoring in smaller streams and tributaries has created challenges for communicating early warning. The ongoing restructuring process of the multilevel governance system in the country also presents challenges, specifically institutional such as insufficient coordination among relevant agencies, lack of adequate personnel, limited budget, and unclear roles and responsibilities. This study uses the Alexander framework (2015) to identify gaps in flood early warning communication in relation to their technical, institutional and socio-cultural components. Qualitative research methods in the form of key informant interviews and on-site focus group discussions were conducted at the national, district and local levels to collect data, taking Ratu watershed as a case study. Based on our analysis, we conclude that, first, while progress has been made in the monitoring and forecasting of floods, integration of socio-cultural aspects that can make early warning information accessible to the most vulnerable has to be strengthened. Second, warning messages need to be co-designed with communities and tailored to meet their diverse needs for proper dissemination and timely protective action. Finally, for flood risk communication to bridge ‘the last mile’ in terms of reaching the most vulnerable in the community must take account of their distinct social, economic and political experiences in both content and delivery of the information.

The Farm to Fork strategy as an external driver for change: possible impacts on nested GI rule systems

Geographical Indications (GIs) are important tools in the national and international trade, capable to convey to consumer information on the place-based quality and reputation of products. Beyond this function, the commercial use of the name in the marketplace can help preserve and protect material and immaterial goods, including local reputation and public goods.1 The legal framework of EU quality schemes is a multi-level governance system, where various stakeholders act at different levels (local, national, European, international). As pointed out by Marie-Vivien and Biénabe, these governance levels are regulated by nested rule systems and heterogeneous stakeholders.2 At the local level, the rule system involves the rules codified in the product specifications and local informal practices. At the national level, the rule system is constituted by the legal framework adopted by each Member State and by national authorities’ informal practices.3 At the EU and international level, the rule...

The Proposed Digital Markets Act (DMA): A Legal and Policy Review

In December 2020, the Digital Markets Act (“DMA”) was proposed. It was prepared by the European Commission (“EC”) following several years of work. The DMA attempts to improve “fairness” and contestability” in the digital sector. The DMA acknowledges that some companies designated as “gatekeepers” maintain power over “core platform services” by virtue of incumbency advantages or bad business behavior. The DMA additionally worries about an extension of gatekeepers control over “ancillary services”, and of incipient gatekeeping positions resulting from tipping effects. The DMA states that it is built on “strong evidence” of high concentration, trading partner dependence, and unfair conduct. The DMA foresees that targeted regulation of gatekeepers’ behavior will promote the emergence of alternative platforms, improve innovation levels, and drive prices down in the digital sector. The DMA covers eight types of core platform services: online intermediation services (including software application stores), online search engines, social networking, video sharing platform services, number independent interpersonal electronic communications services, operating systems, cloud services, and advertising services. This paper gives an overview of the DMA. It does so by describing the DMA’s general characteristics (I), the “gatekeeping” market situations it targets (II), the legal treatment of gatekeeping (III), the multi-level governance system (IV), and the choice of economic policy it articulates (V). The paper concludes by highlighting areas for further consideration by lawmakers (VI). The ambition of the paper is essentially descriptive.

Extension of social insurance coverage to informal economy workers in China: An administrative and institutional perspective

AbstractThis article reviews administrative issues in the context of decentralized social protection in China. In particular, what are the main obstacles to expanding social insurance coverage for workers in the informal economy? Over the last two decades, China has achieved remarkable progress toward universal social protection when this target was set as a national policy priority. However, the social insurance enrolment of informal economy workers still lags significantly behind. This article reviews the application of the International Labour Organization’s definition of informality in the Chinese context and overviews existing pension and health insurances in China. This article discusses the impact of China’s inter‐governmental fiscal relations and decentralized social protection in the multilevel government system. The article highlights that under a system of decentralized managed social insurance many informal economy workers choose to opt out of the system because of low benefits and high compliance costs. This result in deficits in social insurance coverage amongst informal economy workers.

Black Carbon and Other Air Pollutants in Italian Ports and Coastal Areas: Problems, Solutions and Implications for Policies

Ships’ emissions of air pollutants pose problems for local and regional public health and agricultural production, as well as global climate change. The Italian government’s endorsement in 2019 of the creation of a Mediterranean Emission Control Area is a reflection of increasing concern about the emissions. Also, ongoing developments in the International Maritime Organization and in the European Union add to the Italian government’s maritime shipping agenda and increase its complexity and uncertainty. In that context, this review paper addresses two central questions: What are the consequences for human health and agricultural production of ships’ emissions in Italian ports and coastal areas? How can their emissions be reduced? The approach to these questions is inter-disciplinary. It applies the results of studies in atmospheric chemistry and physics; maritime shipping engineering; public health; agriculture; economics; and international law and policymaking to assess current and prospective policy issues in Italy. The principal conclusions are that: (1) Black carbon emissions are threats to human health and agricultural production in Italy, as well as to the global climate. (2) It is important that black carbon emissions receive more serious attention in policymaking processes in order to reflect the significant analytic progress that has been made in terms of understanding the problems it poses and the technological and policy solutions. (3) There are cost-effective, emission-reducing measures that are readily available, as well as other measures needing more time before full-scale implementation. (4) Although existing multi-level governance systems pose complex analytic and policymaking challenges, they also offer opportunities to institute new policies with significant short-term and long-term co-benefits from reductions in emissions.

Differentiation from Below: Sub-national Authority Networks as a Form of Differentiated Cooperation

Transnational networks of local authorities are an established and growing phenomenon in Europe, where they perform a number of (soft) governance functions for their membership, often in direct connection with EU institions. This paper examines networks from the angle of institutional differentiation – an inherent trait of these organisations – in order to expand the analysis of this concept beyond its state-centric confines. The paper also adds to the study of (differentiated) integration more traditionally defined, both by analogy and insofar as networks are part and parcel of the Union’s system of multi-level governance. Building on original empirical data, we identify three dimensions of differentiation generated by networks – insider-outsider, compound and multi-level differentiation – and discuss their implications for the efficiency, effectiveness and legitimacy of networks’ actions. Based on our analysis, we formulate three broad recommendations for policy-makers involved in networks: first, strive for inclusion, especially of smaller and less administratively capable sub-national governments; second, improve available information on networks in order to make their landscape more efficient; third, exploit the paradiplomatic advantages of networks both outside and inside the European Union.

Alcohol policy, multi-level governance and corporate political strategy: The campaign for Scotland's minimum unit pricing in Edinburgh, London and Brussels.

The Scottish government’s plans for a minimum unit price for alcohol were vehemently opposed by the alcohol industry leading to a 6-year delay in implementation after legislation was passed. This article seeks to explain the consequences of devolution and European Union membership for the development of minimum unit price in Scotland through the concepts of multi-level governance, veto points and venue shifting. Systems of multi-level governance create policy interdependencies between settings, an increased number of veto points at which policies can be blocked, and the potential for policy actors to shift decision-making to forums where favourable outcomes are more likely to be attained. In the minimum unit price debates, the alcohol industry engaged in multiple forms of venue shifting and used regulatory compliance procedures and legal challenges at the EU level to try to prevent and delay the policy. This has led to a ‘chilling effect’ on subsequent alcohol policy developments across the United Kingdom.

Sustainable transition of mining cities in China: Literature review and policy analysis

Chinese mining cities face complex challenges of economic transformation. We conduct a bibliometric analysis of international and Chinese literature of mining cities, and trace the policy evolution of Chinese mining cities. Our results show that the central theme of sustainable transition of mining cities, particularly the shrinking mining cities in Northeast China, has contributed significantly to the recent global discussion on the sustainability of mining cities. This study suggests that, 1) long-term oriented urban plans and economic diversification are the essentials for booming mining cities, 2) it is a crucial issue to untangle the tensions between various strategies of sustainable transition and mismatched institutions in shrinking mining cities, and 3) industrial ecological transition can be taken as an overarching strategy for both the boom and bust periods of mining cities. To break the resource curse of China's mining cities, future research on the complexity of multi-level governance system to facilitate the sustainable transition of mining cities is helpful.

Foundations for convergence: Sub-national collaboration at the nexus of climate change adaptation, disaster risk reduction, and land restoration under multi-level governance in Kenya

This research paper examines multi-level governance structures and practices in Kenya as they relate to three interdependent agendas: climate change adaptation (CCA), disaster risk reduction (DRR), and land restoration (LR). We examine the governance landscape at county level and evaluate bridges and barriers to integration that are mediated by linkages across scales within Kenya's multi-level governance system. Based on analysis of qualitative data collected through key informant interviews and workshop discussions in three counties, we argue that subnational governance in Kenya has achieved elements of convergence among CCA, DRR, and LR. We refer to the interconnections among these three agendas and the synergies that can be realized through greater integration among them as the CDR nexus. The analysis indicates a highly decentralized stakeholder landscape, with a diverse mix ofnational, county, and civil society organizations providing leadership and funding that drives emergent CDR priorities. Convergence has been enabled by informal working platforms for inter-sectoral collaboration that have brought together national government, county government and civil society organizations, rather than through formal mechanisms of policy integration established in law. Maintaining integrative CDR practices while progressing on national priorities and commitments related to climate change adaptation, disaster risk reduction, and land restoration is a fundamental governance challenge for the next decade.

The Subnational Dimension of Europeanization

Despite the increasing influence of European legislation on the subnational level of government and local public policy, until recently, the subnational level has played only a marginal role in exploring Europeanization processes. With the creation of the single market in the early 1990s, the process of European integration began to have a significant impact on local governments across Europe. Subsequently, the development of European regional and cohesion policy resulted in the adaptation of the political and administrative structures of the local units of the Member States. However, the impact of European integration is not one-sided. The European Union's multilevel governance system and the spread of the impact of Europeanization on interstate levels pose new challenges for European cities and local actors and enable them to actively participate and influence political decision-making processes at the European level. The paper first conceptualizes the phenomenon of Europeanization and then identifies and addresses its dimensions and mechanisms in the field of local self-government. Emphasis is placed on the implementation of European legislation by local authorities and the institutional and non-institutional (indirect and direct) participation of subnational units in European governance. In an attempt to provide answers to the research questions, the author used the legal analysis and the teleological and linguistic method.

Unravelling multi-level governance systems

One of the most important features of the multi-level governance research programme is the parallel conceptualisation of the vertical and the horizontal relationships within multi-level governance systems. Different systems of multi-level governance are characterised by the relationships between political institutions on the same level (Are there many task-specific organisations?) and by the relationship between different levels (On which level do we see political communities?). By conceptualising scale and community in a substitutive way as Hooghe and Marks in tendency do, some of the potentials are lost. I put forward the suggestion that treating the two dimensions as independent would allow for an even fuller picture of the dynamics of politics in multi-level governance systems.

The multi-level governance imperative

Governments are facing increasingly complex policy challenges, ranging from climate change, demographic pressures, rising inequalities and discontent, to the global health crisis that countries are presently confronting. Successful responses require more integrated approaches to policy making at all levels of government, so that economic, social and environmental actions reinforce each other rather than compete. They also require effective coordination across levels of government to manage shared responsibilities, mutual dependence and common challenges. This commentary highlights the progress in the multi-level governance concept since its first use, and focuses on some current dynamics driving multi-level governance, in particular the trend towards differentiated subnational governance. It then highlights that the way multi-level governance systems are designed has a direct impact on policy outcomes, hence the imperative to strengthen multi-level governance systems. The commentary offers insight into how the Organisation for Economic Co-operation and Development is tacking this imperative to best support countries in their development processes.