Modelling local autonomy and dependence through cooperative relations

• Pages: 410-425
• Date: 14 May 2018
• Published date: 14 May 2018
• DOI: https://doi.org/10.1108/IJPSM-01-2017-0013
• Author: Lluís Medir Tejado,Esther Pano
• Subject Matter: Public policy & environmental management,Politics,Public adminstration & management

Modelling local autonomy and

dependence through

cooperative relations

Lluís Medir Tejado

Department of Political Science, Universitat de Barcelona, Barcelona, Spain, and

Esther Pano

Universitat de Barcelona, Barcelona, Spain

Abstract

Purpose –Given the spread of multi-level governance tools, interaction between local and regional

governments has become an important mechanism for service delivery and the implementation of public

policies. The purpose of this paper is to empirically test a model of cooperative relations affecting local

governments and thus having impact on local autonomy and dependence.

Design/methodology/approach –This paper takes previous typologies as a starting point to theoretically

build and empirically test a model of cooperative relations based on two selected indicators: the degree of

autonomy-dependence and the degree of rigidity-flexibility of the cooperative system. In a second step,

the authors stimulate the model numerically to match real data on it coming from South European local

governments to assess the functioning of the theory in a concrete space and time.

Findings –The combination of the aforementioned concepts, creates a four-option theoretical model that

describes four possible situations where cooperative intergovernmental relations can be empirically placed.

Originality/value –This paper points out the need to incorporate empirical studies to trace the

characteristics and evolution of the cooperative relations between local governments and upper tiers. This is

particularly relevant if the authors are referring to mechanisms that can vary through time. In the current big

and open data era, this empirical process will become easier and more affordable. In this context, local

government studies benefit from particular features that improve the operation of this kind of analysis: large

“N”configuration (a large number of units to be included) and a reasonable equivalence in concepts and

bodies that allows comparability.

Keywords Governance, Localgovernment, Decentralisation,Local government reform, Central government

Paper type Research paper

1. Multi-level governance as a non-static concept

In a multi-level governance scenario, central-local relations are increasingly important and

politically relevant. In fact, this field is currently a key element of local development

strategy, in part because it de eply affects the whole intergov ernmental system.

The cooperative and non-conflictual development of instruments between different levels

of government offers an excellent departure point for studying the institutional design of

legal ties and governance models at the local level. This is especially relevant in systems

of the so-called Napoleonic model, where ties are usually legally determined and leave an

administrative trace that is easy to reconstruct.

Previous studies in this field have pointed to an important increase in the use of different

types of multi-level instrument. In fact, a wide range of policies are supposed to be

implemented at two, or even more, overlapping territorial levels. In general, current models

assess the situation of local government systems taking into account permanent

government tiers only.

One of the most frequently used ways of changing or distributing competencies without

reforming the territorial basis of local governments is the establishment of

intergovernmental ties. Without affecting local governments’legal and administrative

boundaries, central governments sometimes plot the delivery of services according to

different territorial and administrative bases. Delivering services in territories that are

International Journal of Public

Sector Management

Vol. 31 No. 4, 2018

pp. 410-425

© Emerald PublishingLimited

0951-3558

DOI 10.1108/IJPSM-01-2017-0013

Received 4 January 2017

Revised 4 May 2017

29 June 2017

Accepted 11 July 2017

The current issue and full text archive of this journal is available on Emerald Insight at:

www.emeraldinsight.com/0951-3558.htm

410

IJPSM

31,4

different from the single municipality implies, in fact, a restructuring of local governments

(Wollmann, 2004; Steiner, 2003; Bel et al., 2007). Therefore, the main objective of the paper is

twofold: the theoretical design of a model that describes vertical cooperative

intergovernmental relations on the one hand, and to test the impact of those vertical

cooperative relations in a concrete system of local government on the other. Thus, our model

covers the cooperative aspect of all intergovernmental design.

Indeed, building comparative models to analyse the systemic behaviour of different

levels of government when interacting and cooperating could be seen as a useful tool.

Taking the core concepts of both frameworks as a starting point, the paper builds a simple

theoretical model able to compare the cooperative and non-conflictual relationships between

levels of government across time and space.

Linkages and ties between different local government organisations may imply a new

institutional system with its own logic. This new institutional system has a certain meaning

for all its members and a structure that is somehow more than a mere means to achieve

goals. The theoretical model can be used to compare different political systems and

institutional frameworks by identifying key indicators and assigning them standardised

values. This would allow researchers to trace the evolution of those linkages in a temporal or

static way. The model is useful not only for analysing their position according to selected

variables, but also for identifying their past evolution and how they could (or should) evolve

in the future. Moreover, it is possible to analyse a temporal series for a single country and,

where data are available, to place concrete political systems in a certain moment in time and

compare them.

The paper proceeds as follows. The next section presents different theoretical

approaches to intergovernmental relations, together with an introduction to the policy

instruments literature –the anchoring concepts for empirically testing cooperative relations.

The third section presents the data and proposes a theoretically driven model of vertical

cooperative relations. The fourth section manipulates the model numerically to match

Spanish data, while the final section is devoted to conclusions.

2. Models of local government and models of relations: the impact of the

intergovernmental framework

The search for comparative models for analysing local governments is not new and has

evolved over time into an increasingly complex approach. As Stoker (2006) highlighted,

the literature on comparative local governance began with a descriptive study of formally

elected institutions of local government that lacked a certain depth and any capacity to

examine more informal, underlying practices. The study of local governments has always

tried to classify different systems by their main institutional characteristics. The classical

approach of Page and Goldsmith (1987) created a typology based on a comparison of

functions (competencies) assigned to local governments, their autonomous capacity to

take decisions (self-government) and their capacity to access national policy makers.

Hesse a nd Sharpe (1991) added the basic question of local democracy to the former

classification, while Heinelt and Hlepas (2006) included the question of vertical and horizontal

institutional relationships as characteristics relevant to understanding different models of

local government.

Following on from these institutional typologies, other authors promoted classifications

based moreon the capacities and functionsof local governments thanon institutional features.

In this sense, Lidström (1998) created a model typology based not on institutional features but

on the relative position of local governments in the system of intergovernmentalrelations and

its effect on local autonomy. Lidström (1998) created a classification based on the distribution

of tasks between levels of government and local government discretion in the allocation of

goods and policies. In another relevant study with Sellers, Lidström analysed how

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Modelling local

autonomy and

dependence