Configurations, Dynamics and Mechanisms of Multilevel Governance (eBook)

Nathalie Behnke is Professor of Public Administration and Public Policy at the Institute for Political Science, TU Darmstadt, Germany.Jörg Broschek is Canada Research Chair in Comparative Federalism and Multilevel Governance and Associate Professor of Political Science at Wilfrid Laurier University, Canada.Jared Sonnicksen is Senior Researcher at the Institute for Political Science, TU Darmstadt, Germany.

Preface 6
Contents 8
Notes on Contributors 12
List of Figures 16
List of Tables 17
Chapter 1 Introduction: The Relevance of Studying Multilevel Governance 19
Why Another Book on Multilevel Governance? 19
Situating Multilevel Governance: Configurations, Dynamics, Mechanisms 21
Multilevel Governance: A Configuration 21
Multilevel Governance Dynamics 24
Explaining MLG Dynamics: Sources and Mechanisms 25
Multiple Perspectives of Multilevel Governance 27
Governance Beyond Typical State Actors 28
Multilevel Configurations and Actors 29
Between Efficiency and Legitimacy—MLG and Democracy 30
Dynamic Developments of Multilevel Configurations 31
References 33
Part I Government, Governance and the State—Varied Modes of Coordination in Policy-Making 38
Chapter 2 Transformation of the State and Multilevel Governance 39
Introduction 39
Unravelling the Concept of the State 41
Exploring State Transformation 43
Changing State-Society Relations 44
Changes in the Internal Structure of the State 48
Multilevel Governance and the Role of the State 53
References 54
Chapter 3 How Bureaucratic Networks Make Intergovernmental Relations Work: A Mechanism Perspective 57
Introduction 57
Bureaucratic Coordination Mechanisms 59
Setting the Scene: Intergovernmental Coordination in Germany 62
Bureaucratic Coordination Mechanisms in Practice—Evidence from the Interviews 66
Conclusion 70
References 72
Chapter 4 ‘Governance Fatigue’ and Public Mismanagement: The Case for Classic Bureaucracy and Public Values 76
Introduction 76
Autonomy, Integrity, and Leadership in Public Administration Classics 77
Responsible Leadership 81
Public Values Versus Pragmatism 83
Non-bureaucratic Governance as a Threat to Institutional Integrity—An Illustrative Case 85
Conclusion 88
References 89
Chapter 5 Cooperative Administration in Multilevel Governance Analysis: Incorporating Governance Mechanisms into the Concept 93
Introduction 93
Governance Mechanisms 95
Observation 96
Influence 97
Bargaining 99
Overcoming and Creating Deadlock: Evidence from Case Studies 100
First Type of Cases: Overcoming a Deadlock by Waiting for the Possibility of a Package Deal 101
Second Type of Cases: Overcoming a Deadlock by Producing an Object of Trade and Employing the Media to Exert Pressure 103
Third Type of Cases: Overcoming a Deadlock by Making Use of Arguing 104
Fourth Type of Cases: Making Use of the Institutional Setting and Referring to Arguing in Order to Produce a Stalemate 105
Conclusion 106
References 108
Part II Coping with Complexities: Governance in Multilevel Systems 111
Chapter 6 Policy-Making as a Source of Change in Federalism: A Dynamic Approach 112
Introduction 112
Policy and Politics Dimension 114
Basic Interests of Federal Actors 115
Federal Robustness Reconsidered 117
Governance Modes 121
Self-Rule 121
Arguing 122
Bargaining 123
Hierarchy 124
Final Remarks 125
References 126
Chapter 7 National Parliaments as Multi-Arena-Players: A New Deliberative Role Within the EU Multilevel System? 129
Introduction 129
National Parliaments as Multi-Arena-Players—A New Deliberative Role Within the EU Multilevel System? 131
An Emerging Parliamentary Public Space? 135
The Development of Inter-parliamentary Communication 135
Linking Inter-parliamentary Communication to the Citizens? 138
Conclusion 141
References 142
Chapter 8 Intermediary Levels of Governance in Multilevel Systems: Exploring the Second Tier of Local Government from the Assessment of Laymen Politicians 146
Introduction 146
The County Level Across Europe 148
Survey Outline, Data 150
How County Councillors Perceive Their County Within the Multilevel Arrangement 150
Conclusion 162
References 162
Chapter 9 Bridging the Gap Between the Local and the Global Scale? Taming the Wicked Problem of Climate Change Through Trans-Local Governance 165
Introduction 165
Climate Change as a (Super-) Wicked Problem of Local Policy 167
Trans-Local Governance of Climate Change Mitigation 169
Mechanisms of Trans-Local Governance 170
Empirical Evidence from Three German Major Cities 173
Conclusion 178
References 180
Chapter 10 Multilevel Coordination in EU Energy Policy: A New Type of “Harder” Soft Governance? 183
Introduction 183
European Energy Governance as a Difficult Context for Soft Governance 185
Multilevel Coordination in European Energy Governance 187
‘Horizontal Joint Decision-Making+’ in European Energy Governance 191
Conclusion 196
References 197
Chapter 11 Soft Law Implementation in the EU Multilevel System: Legitimacy and Governance Efficiency Revisited 202
Introduction 202
Studying EU Soft Law 205
Case Selection and Data 208
Empirics 209
Financial Market Regulation 209
Social Policy 211
Environmental Policy 214
Discussion 216
References 218
Part III Federalism and Democracy 220
Chapter 12 The Ambivalence of Federalism and Democracy: The Challenging Case of Authoritarianism—With Evidence from the Russian Case 221
Introduction: Is Federalism Conducive to Democracy? 221
‘Authoritarian Federalism’—An Oxymoron? 224
Inherent Tensions: How Do Authoritarianism and Federalism Interact? 226
Federalism, Defective Rule of Law and Informality 226
Federalism and Constraints of Plurality 229
Federalism and the Loyalty of Subnational Elites 231
Concluding Discussion 233
References 235
Chapter 13 Popular Federalism for a Compound Polity? The Federalism of the Antifederalists and Implications for Multilevel Governance 238
Introduction 238
The Democratic Federalism of the Antifederalists 240
The Contest for Occupying the “Federal” Position 241
Contesting and Transforming the Meaning of Federalism 243
The Parallel Transformation of the Concept of Republic 246
Discussion: A More Popular Federal Union? 248
References 252
Chapter 14 Multilevel Democracy: A Comparative Perspective 255
Introduction 255
The Core of Democratic Legitimacy: Politically Accountable Governors 256
Electoral Accountability: Forward and Backward-Looking 257
Unpredictability Is the Basis of Electoral Power 259
Democratic Accountability in Federal Democracies 260
Dual Federalism in the United States 261
Joint-Decision Federalism in Germany 263
Accountability and Responsiveness in the Multilevel European Polity 265
Legislation by the “Community Method” 266
EMU: Government in the Supranational-Intergovernmental Mode 268
Conclusion 273
References 274
Chapter 15 On Cross-Level Responsiveness in Multilevel Politics: A Comparison of Airport Expansions in Germany, Switzerland and the UK 278
Introduction 278
The Challenge of Aviation Infrastructure 279
Case Selection 282
Munich Airport (MUC) 283
Zurich Kloten (ZRH) 286
London Heathrow (LHR) 290
Comparison and Conclusion 293
References 296
Chapter 16 Demoi-cracy: A Useful Framework for Theorizing the Democratization of Multilevel Governance? 298
Introduction 298
The Challenge of Democratizing MLG 300
The Demoi-cratic Model(s) 303
Definition of Demoi 304
Accommodation vs. Politicization in Demoi-cracies 306
Four Ideal Types of Demoi-cracy—And How They Can Inform MLG 308
Conclusion 311
References 312
Chapter 17 Extending the Coupling Concept: Slack, Agency and Fields 316
Introduction 316
The Coupling Framework and Types of Coupling 317
On Coupling and Forms of Slack 319
Coupling Actors and Ambiguous Couplings 323
Ambiguous Couplings 324
Coupling and Shape-Shift Representation 326
On Couplings and Fields 328
Conclusion 330
References 331
Part IV Explaining Dynamics in Multilevel Systems 333
Chapter 18 The Evolution of Legislative Power-Sharing in the EU Multilevel System 334
Introduction 334
Legislative Power-Sharing in Multilevel Systems 336
The Evolution of EU Legislative Power-Sharing and Procedures 339
Findings 343
Consultation 343
Cooperation 345
Codecision II 347
Conclusion 350
References 351
Chapter 19 Hidden Power Shifts: Multilevel Governance and Interstitial Institutional Change in Europe 353
Introduction 353
Theoretical Argument: Changing Institutional Rules: A Rationalist, Power-Based Bargaining Explanation of Informal Institutional Change 354
Interstitial Institutional Change: The Emergence of Informal Institutions 355
The EP’s Strategies to Obtain Informal Institutional Changes 357
The Empirical Cases 359
Methodology 359
Case One: The Spitzenkandidaten Strategy 359
Case Two: The European Parliament’s Informal Voice in Appointing Individual Commissioners 362
Case Three: The Transatlantic Trade and Investment Partnership (TTIP) 363
Conclusion 366
References 367
Chapter 20 Sub-Federal State-Building and the Origins of Federalism: A Comparison of Austria, Germany and Switzerland 370
Introduction 370
Within Path Variation: Constituent Units’ Autonomy and the Implementation of Federal Law 372
Sub-Federal State-Building in Austria and the Pre-1866 German Territories 375
Institutional Dilemmas of Federalization in Germany and Switzerland 378
Federalization by Original Compact Versus Federalization by Devolution 382
Conclusion 383
References 385
Chapter 21 Conclusion: Governing Under the Condition of Complexity 387
Introduction 387
The Challenge of Complexity 389
Varieties of Multilevel Governance 392
Division of Power and Pattern of Coordination 393
Governance and Democratic Governments: Connected Games and Coupling of Arenas 394
The Impact of Party Politics 398
Loose Coupling 400
Dynamics of Multilevel Governance 402
Democratic Multilevel Governance—An Oxymoron and a Guiding Principle? 404
References 405
Index 410