Perspectives on Local Governance Across Europe

Table of Contents

1. Frontmatter

2. Chapter 1. Introduction: The Book’s Scope and Content

   Björn Egner, Hubert Heinelt, Jakub Lysek, Patricia Silva, Filipe Teles

   Abstract

   This introductory chapter gives on the one hand an overview of the survey on which the book is based. This includes self-critical comments on the response rate and that not all those who took part in the survey wanted to answer all the questions or could not answer all of them. On the other hand, the research questions addressed by the individual chapters of the book and their main findings are briefly outlined. This allows readers to get a quick overview of the book’s content.

3. General Insights on Local State-Society Relations

   1. Frontmatter

   2. Chapter 2. Devil in Details: Beyond Deceptive Comparisons of European Local Governments

      Filipe Teles

      Abstract

      This chapter’s main claim is that scholarship has failed to fully develop the practical implications of the diversity of local state society networks. Our analysis of the comprehensive survey of the perceptions of members of these networks in Europe has shown their remarkable differences and some interesting commonalities, mainly along a clear evidence of their dimension of coherence. Only very few dimensions in specific countries and along a few policy fields follow expected patterns. The absence of a clear influence of state and administrative traditions from the set of possible determinants of network diversity presents relevant theoretical and comparative challenges to current knowledge in European local government research. The chapter puts into perspective existing classifications of local state-society relations as well as of local government systems to explore their complementarities and explanatory capacity in drawing a more accurate landscape of European local governance.

   3. Chapter 3. The Notion of Democracy Among Actors Involved in Local State-Society Relations

      Hubert Heinelt, Björn Egner

      Abstract

      Decision making in the various forms of local state-society relations covered by the survey is obviously taking place beyond or beside the municipal council as the core body of representative democracy at the local level.

      However, as empirically shown by the results of previous surveys even mayors and councilors do not clearly support a notion of democracy in line with representative democracy emphasizing the significance of electoral legitimacy and decision-making competencies of elected representative bodies. Instead, mayors and councilors follow clearly different notions of democracy, which correspond to the distinction between a “thin” liberal (or representative) democracy (as Barber, Strong democracy: participatory politics for a new age. University of California Press, Berkeley, 1984 called it) and a (broader) participatory understanding of democracy. Referring to this distinction, the chapter addresses the following questions: Can different notions of democracy be found among actors involved in local state-society relations? If different notions of democracy can be found among the surveyed actors, how to explain them?

      The first question could be confirmed. The support of one of these models can neither be explained by the role performed by them—namely, as representatives of (certain) societal actors or of the municipalities and whether the latter were elected politicians or civil servants (i.e., their institutional background), nor the function (i.e., just consultation or partnership or even delegated power) of the considered local state-society networks in which the respondents have been involved in. Instead, general political attitudes (self-placement on a right-left scale) and socio-structural characteristics (age and gender) of the respondents that correlate with political attitudes make a difference in the support or rejection of one of these models of democracy.

   4. Chapter 4. Determining the Democratic Quality of Non-Electoral Representation in Local State–Society Networks

      Karin Fossheim, Hans Vollaard

      Abstract

      Electoral democracy and direct participation at the local level suffer from inequality: certain voices are more often heard than others. Moreover, static references to local councilors’ election once may not suffice to legitimize representative claims. However, the non-electoral representation may redress these problems. It involves both elected and non-elected actors claiming to represent a group of people or cause on a variety of grounds, such as expertise and shared experiences. Thus, representatives and constituencies are created in a dynamic process of representation. A challenge to non-electoral representation is, however, its democratic quality. In particular, non-elected makers of representative claims cannot rely on elections for their authorization and accountability. The analysis shows that a large share of non-elected representatives in local state-society networks across Europe indicate that their proclaimed constituencies agree with their positions, while they feel obliged to give account to the ones they represent. They also inform the latter through personal contacts and in general meetings. The analysis also suggests that network characteristics better explain the democratic quality of non-electoral representation than factors at the level of society at large or individual network members. The extensive use of non-electoral mechanisms of authorization and accountability is a hopeful sign that non-electoral representation can reinvigorate local democracy, even more so because networks can be more easily changed than the society at large or individual network members.

   5. Chapter 5. Legitimacy Claims of Societal Actors Involved in Local State-Society Relations

      Björn Egner, Hubert Heinelt

      Abstract

      There is a lot of debate about the legitimacy of decisions taken in governance arrangements—like local state-society relations—in which various societal actors are involved. The core question of why particular actors should be involved in governance arrangements has been addressed by Schmitter with his “holder concept”—arguing that “persons/organizations […] could potentially be invited or allowed to participate [because] they possess some quality or resource that entitles them to participate” (Schmitter, Participatory governance. Political and societal implications, Leske & Budrich, 2002: 62). And these “quality or resource that entitles them to participate” depend on “the substance of the problem that has to be solved or the conflict that has to be resolved” (Schmitter, Participatory governance. Political and societal implications, Leske & Budrich, 2002: 63). Based on these ideas, Schmitter distinguishes different holder types, which are operationalized by particular responses to a question of the questionnaire used in the survey. The analysis presented in this chapter shows that societal actors refer in their representative claims to three independent dimensions of legitimacy, namely, to (a) their “specific knowledge required for the effectiveness of decisions taken or suggestions made by network” and their “awareness about the issue at stake in the network”, (b) the representation of “the residents living in the territorial” boundaries of the network and, therefore, “those who are affected by measures of the network”, and (c) representation of those who “contribute financially to the activities of the network” and “can carry out suggestions or decisions from [the respective] network”.

   6. Chapter 6. Ideology, Trust and Autonomy: Differences Between Elected Politicians and All Other Participants of Local State-Society Networks

      Carmen Walenta-Bergmann

      Abstract

      Local state-society networks are concerned with very different topics and challenges, comprising people from all different backgrounds. A comparatively big group of network members is at the same time part of a democratically elected representative body, which makes it an especially interesting group for the analysis of reasons for political activity. This chapter, therefore, engages in answering the following research question: What are the differences between elected politicians and all other participants of local state-society networks? The analysis shows that differences do exist for sociodemographic and ideological variables, as well as for the perception of trust and autonomy. The results of the logistic regression model provide relevant information about the potential sources of political ambition and the decision to run for office.

   7. Chapter 7. Does Metagovernance Matter? The Patterns and Effects of Local Politicians’ Participation in Local State-Society Relations

      Tom Verhelst, Koenraad De Ceuninck

      Abstract

      In contemporary politics at the local level, traditional government is often complemented by network governance. Within this compound system, a particular function is envisaged for local elected politicians as a linchpin or democratic anchor of governance networks through the metagovernor role. As metagovernor, politicians steer the network proceedings by exercising several activities (e.g., facilitating cooperation, building trust, protecting the common interest, maintaining a broad agenda, ensuring self-assessment). This chapter examines the metagovernor role of local politicians in networks between the local state and society in Europe. Confining the metagovernance concept to the stricter variant of hands-on participation, the chapter answers three basic questions: (a) To what extent do politicians assume the role of hands-on metagovernor who participates in network deliberations? (b) How can we explain variation therein? (c) What are the effects of metagovernance on network performance?

   8. Chapter 8. The Unbearable Lightness of Coherence Within Local Governance Arrangements

      Patricia Silva, Luís Mota, Filipe Teles

      Abstract

      This chapter analyses perceptions of coherence within local governance arrangements. It seeks to assess the social, political and demographic variables that can explain variance. It demonstrates that coherence positively impacts the effectiveness and coordination of local networks, which are also propelled by personal and institutional trust among local stakeholders. Furthermore, the chapter highlights that coherence is by no means immutable. Instead, such arrangements cannot easily be established once and endure over extended periods unless the actors involved take action to maintain coherence over time.

   9. Chapter 9. Throughput Legitimacy in European Local State-Society Networks

      Carmen Navarro, Carles Pamies, Lluís Medir

      Abstract

      Whether for practicing consultation, coordination or decision-making over a policy field, local governance arrangements imply for their members getting involved in processes of interaction. These processes possess certain features that can be assessed in order to capture the level of throughput legitimacy of networks. Throughput legitimacy is considered a key dimension of networks’ functioning, essential not only for sustaining networks over time, but also for strengthening different other dimensions of legitimacy. Drawing on results of the survey among actors involved in various forms of local state-society relations regarding the effectiveness, inclusiveness, transparency and accountability of these networks, the chapter aims to present those actors’ perceptions of throughput legitimacy, to assess the extent to which European local state-society networks meet throughput legitimacy’s demands, and to identify factors that can explain different degrees of its fulfillment.

   10. Chapter 10. Collaborative Governance and the Rescaling of Local-State Society Networks

       Marcello Cabria, Annick Magnier

       Abstract

       The institutionalization of a local network formalizes the adhesion of the institution to a different concept of democracy and public action, but also engages in a change of scale, updating the socio-spatial relations framework. Particularly significant are the innovations in the geographic scale, which overcome the traditional jurisdictional boundaries. Frequently these innovations are linked to other changes, as in the delimitation of the policy field of reference or in the temporal prospects of the public action. Regions and cities, of every dimension and status, claim an active role in the economic growth policies and approaches to shift from sectoral to territorial strategic viewpoints. The phenomenon implies not only the coordination among numerous actors but the institutionalization of participatory approaches, driven to include different stakeholders. Scales and scaling must hence be observed through three fundamental lenses: temporal, jurisdictional and functional.

       In this contribution the authors discuss how the institutionalization of networks contributes to the continuous redesign of territories and to changes in the functional and temporal policy scales, tracing new patterns of sense around the place and networked place-making from the local to the global sphere.

4. Network-Specific Insights on Local State-Society Relations

   1. Frontmatter

   2. Chapter 11. The Prevalence of Low-Relevance Networks in Central and Eastern Europe and the Post-Communist Legacy

      Jurga Bučaitė-Vilkė, Jakub Lysek, Aistė Lazauskienė

      Abstract

      This chapter presents insights into the comparative analysis of the local state-society networks in five selected Central and Eastern European (CEE) countries—namely, the Czech Republic, Croatia, Latvia, Lithuania and Poland. The dimension of relevance is an important indicator explaining the decision-making power of the local state-society networks in the region that also reflects the turbulent democratic transition. Compared to the Western system of local state-society infrastructure, most observed CEE countries have low scores of autonomy, coherence, and, particularly, relevance, which refers to the civic actors’ impact on policy-making (Heinelt et al., Close ties in European local governance. Palgrave Macmillan, Cham, 2021). The chapter focuses on the country-specific differences in the perception of the decision-making power of institutional networks by their members. From the results of the statistical analysis, it can be concluded that the perception of the relevance of the networks depends on the previous political engagement of the societal actors involved, public trust and the institutional context in the region.

   3. Chapter 12. Advisory Councils at the Local Level: Do they Add Value for Participation?

      Iveta Reinholde, Malvīne Stučka, Inese Āboliņa

      Abstract

      It is expected that advisory councils created at the municipal level will promote the participation of local residents in a specific area of local interest, reaching a better understanding of the complexity of municipal governance and affecting the quality of life. The chapter examines whether advisory/consultative councils at the municipal level cover fully the spheres that might be important for municipal residents and in what way the council shapes the local decision-making process and outcomes. Based on an in-depth analysis of the advisory functions of these councils, the chapter shows the specificities and results of consultations.

   4. Chapter 13. How Members of Youth Network in Europe Perceive Their Influence

      Linnéa Henriksson, Janette Huttunen

      Abstract

      Young people participate less in institutionalized forms of political engagement than older citizens do and there has even been worries about young generations’ lesser attachment to democracy and their undemocratic attitudes. In order to provide young people the opportunity to influence decision-making, youth councils have been established in many countries around Europe. Youth councils are national representative bodies that exist to provide young people an outlet for institutionalized political participation. In addition to youth councils, other kinds of networks on youth issues, consisting mostly of adults that represent organizations and actors promoting youth welfare, have been established around Europe. The chapter examines different kinds of youth networks in Europe and examines how the members of youth networks perceive their influence. The following research questions are explored in the chapter: a) How politically influential are the youth networks in different parts of Europe according to the perception of their members? and b) Can differences in the perceived level of influence be explained by the members’ personal attributes or by varying institutional arrangements?

   5. Chapter 14. Participation Without Influence? On the Role of Councils for Elderly and Councils on Disability

      David Feltenius, Linnéa Henriksson

      Abstract

      Councils for elderly and councils on disability have existed for many years in the Nordic countries, but very little is known about their actual operations and functions. The purpose of this chapter is to describe and analyse the role performed by those councils in three Nordic countries: Sweden, Norway, and Finland. Of special interest is the role of the councils in terms of participation and influence and how it is experienced among representatives of civil society. The following research questions are answered in this chapter: (a) What is the perception held by representatives of civil society on the role performed by the councils, that is type of participation? Further, is this participation with or without influence? (b) Do their perceptions differ from the views held by other members of the councils, namely elected politicians? (c) Is there any variation between different types of councils and countries in those respects and how could it be explained?

   6. Chapter 15. Organized Business and Trade Unions in Local Governance

      Detlef Sack

      Abstract

      The assumption that organized business interests have a privileged role in local politics is an ongoing issue in the research on local politics and governance. This chapter addresses this question from two different but interwoven perspectives. Section one looks at the grade of local business influence and the explanation for attributing power to local business. While the overall influence of local business has been assessed as rather moderate, the study shows that the perception of business influence is mainly determined by individual socio-political attitudes and social status and not by immediate network experiences. As this result is not in line with previous research, this chapter contributes to (quantitative) local governance research with a conceptual and methodological recommendation to rigorously integrate individual data when dealing with data from local experts. Section two shifts the perspective to local business and trade unions as subjects of local governance and investigate their experiences. It shows that the influence of the local state-society networks is positively interrelated with the voice of the organization and group that is represented by local business and trade unions, although not significantly. In general, both groups have a positive take on local state-society networks. They also have the same ambivalent assessment of local government and its involvement in local state-society networks: These should be autonomous from local authorities while local government is called for the management and support of the local state-society networks. However, local business and trade unions vary in both the group they represent and the density of coupling with the organization and group they come from. While local business thinks that it has specific knowledge resources at their disposal, union members feel a responsibility for the residents. Additionally, they appear to be held notably more accountable by the membership of the organization of origin than local business.

   7. Chapter 16. Alike in Diversity? Local Action Groups in Nine European Countries

      Jakub Lysek, Joanna Krukowska, Carmen Navarro, Alistair Jones, Colin Copus

      Abstract

      Local Action Groups (LAGs) are seen as an integral part in the development of rural economies across the EU. They are a strong network of interaction between the local state and society. Yet what is unclear is the extent to which LAGs operate in a similar manner across different countries. Their remit is detailed clearly through the EU; their activities and operations, however, may differ significantly. For example, in some countries LAGs operate beyond the rural environment. This chapter explores the diversity and uniformity of the LAGs included in the survey, to assess the self-perceptions of their role and importance to civil society.

   8. Chapter 17. Power to Rule: The Perception of Power and Relevance in Local Educational Networks in Europe

      Eva Marín Hlynsdóttir, Grétar Thór Eythórsson

      Abstract

      Findings from previous research on local state–society relations in Europe suggest that attitudes toward civic participation in such networks vary greatly between different types of networks and countries. The chapter explores the perceived influence of educational networks in relation to the work of their networks by focusing on networks in six different countries—Croatia, Greece, Iceland, Portugal, Spain, and Switzerland. This provides for a comparison of perceptions of influence and power within educational networks in relation to different types of institutional contexts and cultural settings. The chapter focuses on exploring how educational networks are organized in these countries and whether there are any notable patterns in relation to different contexts. It is also investigated how members of these networks perceive their influence based on the types of actors, such as the differences between members of civic society and elected members of councils.

5. Backmatter