Negotiating Urban Space: The Challenge of Political Steering in Market‐ and Network‐oriented Urban Planning

This article examines challenges related to the political steering of New Public Management‐inspired planning practices in Norway and asks if local politicians have sufficient and adequate instruments to hand, and if they are willing and have the knowledge to use them. The discussion is based upon a broad survey of the 145 largest municipalities and qualitative interviews in the three largest cities. It is found that local politicians do not lack steering instruments, as the different managerial practices represent a spectrum of suitable tools for giving direction to urban development. However, the data indicate that local politicians do not utilise the full steering potential of the instruments due to lack of knowledge and will. These findings contribute to the discussion of the strategic steering role of local politicians.     

In Search of the Government in Local Government: Coalition Agreements and Office Payoffs in Norway

The politics of European local government is often assumed to take place in a rather depoliticised and non-partisan environment. This feature is especially apparent in Norway, where local government institutions are designed to create a high degree of consensus and accommodation. No local cabinet takes office, and therefore no formal roles of a majority government and an opposition are offered. This paper tells a different story, however. Following the 1999 elections many municipalities are now experiencing partisan cooperation based on binding political agreements. In these cases the common practice of proportional distribution of the important political positions is replaced with a 'winner takes all' principle, as only the majority constellation is rewarded with office payoffs. Given that this form of cooperation is the closest analogue to any cabinet formation at the local level, it is clearly of interest to uncover under which conditions it occurs. The empirical analysis therefore uses variation in structural, socioeconomic and political characteristics to predict the local coalition behaviour. The empirical model captures some important determinants in the variation of structural characteristics, and, as expected, explicit and binding coalition agreements are found in the large and central municipalities. Socioeconomic setting is furthermore important, since municipalities with a high degree of financial autonomy and poor policy performance experience this kind of formalised cooperation more frequently. Systematic effects are also found for political characteristics, with electoral volatility, party fragmentation and functional organisation models all increasing the probability of coalition agreements.     

Introduction: Understanding Public Policy through Its Instruments—From the Nature of Instruments to the Sociology of Public Policy Instrumentation

Public policy instrumentation and its choice of tools and modes of operation are treated either as a kind of evidence (governing means making regulations, taxing, entering into contracts, communicating, etc.) or as if the questions it raises (the properties of instruments, justifications for choosing them, their applicability, etc.) are part of a rationality of methods without any autonomous meaning. This paper aims to explain the significance of a political sociology approach to public policy instruments in accounting for processes of public policy change: (1) public policy instrumentation is a major issue in public policy, since it reveals a (fairly explicit) theorization of the relationship between the governing and the governed: every instrument constitutes a condensed form of knowledge about social control and ways of exercising it; and (2) instruments at work are not neutral devices: they produce specific effects, independently of the objective pursued (the aims ascribed to them), which structure public policy according to their own logic.     

Voter responses to refugee arrivals: Effects of settlement policy

In this paper we leverage a sudden shift in refugee settlement policy to study the electoral consequences of refugee settlements. After the 2013 Norwegian parliamentary election, the newly elected right-wing government made a concerted effort to spread newly arrived immigrants across the country, with the consequence that some municipalities with limited experience in settling refugees accepted to do so. We propose that such policy changes have political consequences, increasing the salience of immigration issues and shifting voters’ preferences to the right. We further propose that successful refugee integration can move (parts of) the electorate to the left, with stronger political polarization as a possible effect of the policy change. Applying difference-in-differences techniques, we find no evidence of unidirectional shifts in voter sentiments, but support for the hypothesis of stronger political polarization.     

Does Gender Equality Affect Municipal Transparency: The Case of Spain

The influence of women in organizational transparency is an understudied vein of representative bureaucracy. Literature claims that the increase of women in formal political representation opened the opportunity to bring to public organizations gender diversity, experiences, and values different from those of men. It highlights the beneficial leadership styles and the legitimacy of public bureaucracies. Since gender equality in Spanish local government has increased in recent years, it was the trigger and the aim for this study: to understand the influence of women’s political representation on the level of Spanish municipalities’ transparency. The analysis draws on panel data econometric techniques. The results reinforce the discussion that the representation of women in local political life will increase information transparency and reduce information asymmetry in municipalities.     

Local government consolidations: The impact of political transaction costs

Local government in Norway comprises a large number of small municipalities. Cost efficiency can be improved by consolidating local authorities, and central government has designed a framework to stimulate voluntary mergers. Existing theories suggest that political transaction costs will impede consolidations. (1) Generous grants compensate diseconomies of scale. Central government has promised small municipalities that grant levels will be maintained, but policy promises may not be credible. (2) Property rights to local revenues are nullified when consolidations have been implemented. High-revenue municipalities will therefore go against merger with a poorer neighbor. (3) A consolidated local council may be composed of different political parties, and it may therefore pursue other policies than an existing council. Expected changes in party strength can lead municipalities to oppose a proposed consolidation. (4) Senior politicians are less likely to support mergers, particularly if they come from small polities. We offer an explicit test of these propositions based on data for Norwegian local government. Elected politicians and administrative leaders are more interested in consolidating when efficiency gains are large. Local revenue disparities and to some extent dissimilar party preferences are significant impediments to voluntary mergers. Additionally, smaller municipalities are often prepared to sacrifice some efficiency gain to remain independent polities.     

Newspapers and Budgeting: The Effects of Media Coverage on Local Expenditure Decisions

The media play an important role for the political agenda. It is less clear, however, how strong the media impact is on political decisions. This article pursues a different approach from the one commonly used in the media–policy research tradition. Instead of focusing on the relationship between the content of the media agenda and the political agenda, it is argued here that from a broader policy perspective, media pressure on the incumbents is a more relevant variable. Media pressure is measured as media competition and media coverage. Furthermore, the article investigates the effect of media variables on budgetary decisions in different spending areas, and compares the relationships between media pressure and policy under various economic, political and institutional conditions. This allows the authors to investigate which factors hinder and promote media influence on policy. The units of analysis are the Danish municipalities, which are similar political units with different newspaper coverage. Coverage by local newspapers is intense in some municipalities, but absent in others. As expected, the authors find that in municipalities with intensive coverage from local newspapers, local politicians do feel a stronger media pressure. However, when it comes to budgetary decisions, almost no observable effects of media pressure are found, either generally or in favourable political, economic or institutional settings.     

Municipal Rebate Programs for Environmental Retrofits: An Evaluation of Additionality and Cost‐Effectiveness

When policies incentivize voluntary activities that also take place in the absence of the incentive, it is critical to identify the additionality of the policy—that is, the degree to which the policy results in actions that would not have occurred otherwise. Rebate programs have become a common conservation policy tool for local municipalities seeking to retrofit residential properties with efficient appliances. This research evaluates whether such rebates can be cost‐effective means for water utilities to promote water conservation. A unique database is developed that combines water‐use data over a three‐year period for all households that participated in a utility's high‐efficiency toilet (HET) rebate program, water‐use data for a matched sample of neighbors who did not receive a rebate, and a survey of rebate participants. Difference‐in‐differences models indicate that installation of an HET reduces household water consumption by approximately 7 percent. While installation of an HET appears to be an effective means for achieving household reductions in water consumption, our results also suggest that the rebate program is a much less effective means for achieving household reductions in water consumption. Specifically, the rebate program is found to provide limited additional water savings beyond what would have occurred naturally and is responsible for only 37 percent of the total water reduction attributable to the installation of HETs over the study period. © 2013 by the Association for Public Policy Analysis and Management.     

Political business cycles at the municipal level

The present article tests predictions of rational political business cycle models using a large and previously unexplored data set of Portuguese municipalities. This data allows for a clean test of these predictions due to the high level of detail on expenditure items, an exogenous fixed election schedule, and homogeneity of Portuguese local governments with respect to policy instruments and institutions. Estimation results clearly reveal the opportunistic behaviour of local governments. In pre-electoral periods, they increase total expenditures and change their composition favouring items that are highly visible to the electorate. This behaviour is consistent with an effort to signal competence and increase chances of re-election.     

The political economy of local government financialization and the role of policy diffusion

By analyzing why English local governments have made extensive use of long-term market loans with embedded derivatives, this paper seeks to contribute to the growing literature on local government financialization. Using an original, large-N panel dataset for the period from 1998 to 2014, we show that the configuration of the local political economy is an important driver of financialization processes: a Labour Party majority as well as fiscal and economic stress make it more likely that councils adopt risky financial instruments. As the use of financial innovations has also diffused geographically, policy diffusion impacts local governments as well. Highlighting the conditional effect of finance sector power, which only increases the use of financial innovations in very large councils, as well as the temporal dimension of fiscal and economic stress, we create ample avenues for further research.     

Dillon's Rule Under the Burger Court: The Municipal Liability Cases

Under the Burger Court, the constitutional relationship betweenstates and their municipalities has been examined primarilyin cases involving private suits initiated against municipalitiesunder federal antitrust and civil rights statutes. Since theCourt's 1943 Parker v. Brown decision, it had been presumedthat municipalities as political subdivisions of states wereas immune as their states from tort liability under the ShermanAntitrust Act. The Burger Court, however, ruled that municipalitiesare not automatically immunized from tort liability simply becauseof their status as political subdivisions unless they can demonstratethat their actions were undertaken pursuant to an expressedstate policy. After 1980, the Court continued to uphold thevulnerability of municipalities to private suits authorizedby federal statutes, but moved to narrow the types of remedyappropriate under common law. The Burger Court did not, therefore,address the more fundamental question of whether municipalitiesas public actors should be liable to private damages in thecourse of their public functions.     

Effect of the Political System on Local Financial Condition: Empirical Evidence for Spain's Largest Municipalities

The significant relationship between public spending and political system has led to a considerable increase in the studies being carried out to analyze how the latter affects public spending, debt, and fiscal pressures. Given the effect that municipal finance has on the quantity and quality of the public services that future generations will enjoy, the aim of this study is to analyze the effect that political ideology and strength have on local government management overall through analysis of the financial condition. With this goal in mind, the study applied panel data methods that allow unobservable heterogeneity to be controlled to a sample of 153 of Spain's largest municipalities for the 1988–2008 period. The results show that the municipalities governed by progressive political parties are worse off financially than those governed by conservatives. Likewise, strong citizen support guarantees greater budgetary solvency.     

Reform of the United Nations Security Council: equity and efficiency

Rents and political motives are present in many aspects of public policy. This article considers the role of rents, rent seeking, and the political choice of environmental policy. Rents are introduced into the political choice of price and quantity regulation under conditions of uncertainty. The model shows how political-economy aspects affect the choice between price and quantity regulation. The contesting of rents associated with different policies affects the regulatory structure and influences the political choice of an environmental policy target. The primary conclusion is that the political choice of environmental policy depends on the interaction between the efficiency of rent transfer and the size of rent-seeking groups within the economy.     

On the Public Choice Critique of Welfare Economics

The public choice literature urges the welfare economist toanticipate how political forces will shape the levels of newpolicy instruments when government intervenes in a new way.This paper argues that the welfare economist should alsorecognize that new interventions may impact the politicallydetermined levels of existing policy instruments. It shows howthe introduction of a new instrument can lead to shifts inpolitical coalitions or compromises in existing areas ofconflict that can produce significant changes in existingpolicies. Such spillover effects can provide new arguments forintroducing particular policy interventions. Even a policyinstrument without an obvious welfare economic rationale canchange voter coalitions and shift the policy equilibrium in awelfare improving direction.     

Backloading to extinction: Coping with values conflict in the administration of Australia's federal biodiversity offset policy

Policy-makers are frequently required to consider and manage conflicting public values. An example of this in the environmental domain is biodiversity offset policy, which governments worldwide have adopted as a mechanism to balance environmental protection with socio-economic development. However, little work has examined administrative practices underpinning biodiversity offset policy implementation, and how the adoption of coping strategies to manage value conflicts may influence resulting policy outcomes. This study fills this research gap using a case study of Australia's federal biodiversity offset policy under the Environment Protection and Biodiversity Conservation (EPBC) Act 1999. Using data from 13 interviews of federal policy administrators, I show that the introduction of a new policy in 2012 enabled a shift from the use of precedent to a technical approach for setting offset requirements under the EPBC Act. Yet, multiple sources of policy ambiguity remain, and administrators have adopted post-approval condition-setting, or ‘backloading’—a form of cycling, facilitated by structural separation—to defer detailed assessments of offset requirements until after biodiversity losses are approved. Backloading thus undermines the effectiveness of environmental policy and will persist as coping strategy unless policy ambiguity is reduced via legislative amendments and adequate resourcing of biodiversity conservation.

Points for practitioners

• Biodiversity offset policy requires administrators to manage conflicting environmental and socioeconomic values.
• Technical decision tools reduce reliance on case-by-case decision-making, but multiple ambiguities persist.
• Backloading (post-approval condition-setting) defers values conflict, but reduces transparency, accountability, and policy effectiveness.
• Policy ambiguity must be reduced at the political level to facilitate effective biodiversity conservation.

     

“Pioneers but not guinea pigs”: experimenting with climate change adaptation in French coastal areas

Uncertainty surrounding climate change has encouraged policy makers to engage in flexible and exploratory policies and forms of policy making. The article examines the potential of experimentation in devising coastal adaptation policies, taking into account its political dimensions. We analysed a multi-level experiment, funded by the French Ministry for the Environment from 2012 to 2015, where coastal municipalities volunteered to simulate the implementation of planned retreat as an adaptation strategy. Using insights from discursive institutionalism, we tracked developments throughout the experiment period. We highlight a combined process of governance experiment, allowing social innovation at local and regional scales, and a more strategic tool for the state, governing and steering local coastal policy with new instruments. We shed light on a particular policy entrepreneur (a public organization dealing with coastal management) playing at the intersection of these two forms, and in the interplay of policy scales. Although the experiment contributed to the innovation of legal and economic instruments and produced policy feedbacks in local planning and governance, learning capacities of the multi-scale architecture are still moderate to make planned retreat a reality in the near future. The conclusion considers performative and interpretive effects of policy experiments as further research questions to explore.     

The birth,life, and death of policy instruments: 35 years of EU gender equality policy programmes

Policy instruments research is an essential part of studying European Union governance. A growing interest in processes of (de-)legalisation and patterns of instrument choice requires a more process- and context-oriented analysis of the EU’s instrument selection. Using a political sociology approach, the article analyses patterns of instrument choice in soft law policy programmes, by examining the life cycle of EU gender equality policy programmes from 1982 to the present day. Gender equality policy programmes offer an in-depth understanding of how the Commission upgrades and downgrades policy instruments. The analysis indicates that patterns of policy instrument choice are not necessarily inflexible once a policy instrument is selected. Instead, patterns vary while the instrument is (de-)legalised. Investigating gender equality policy programmes provides explanations for the shifts in the use of legislative instruments and their limitations.     

Worldwide experience in sales taxation: Lessons for North America

Worldwide fiscal experience over the past twenty-five years indicates steady expansion in the political and academic constituency for expenditure taxation, including indirect taxes on consumption. Retail levies have emerged as the preferred method of indirect taxation of consumption, as older, pre-retail sales taxes have proven unsuited to modern economic structures. Increasingly, reform of sales taxation has involved a shift to one particular form of tax, the European Community type of value-added tax (VAT). This consumption tax option is again a topic of policy debate in North America, particularly in Canada where a VAT was under active consideration in 1985.This paper sifts through worldwide experience with broad-based sales taxes to identify lessons for tax policy in North America both in the short and longer-run. It indicates that the reputation of such taxes as regressive instruments may have been much exaggerated, and that in any case methods are available, particularly in Canada, for resolving equity issues in sales taxation. The VAT is shown to have marginal economic and administrative advantages over single-stage federal retail taxes in both Canada and the US. However, these advantages are not nearly so significant as in European countries where the VAT was adopted there. Further, sensible debate over the merits and limitations of the VAT in North America will call for much closer scrutiny of the problems unique to this form of tax. Finally, three political issues that were not significant in Europe will likely have an important bearing on any future choices of sales tax instruments, both in the U.S. and in Canada.     

Reform Politics through the Creation of Inefficient Political Institutions: The Case of the 2007 Danish Administrative Reform

This article poses the question of whether reform politicians' pursuit of institutional goods may, under certain circumstances, lead to the creation of inefficient political institutions. The theory of weakening political actors through the creation of inefficient political institutions, as elaborated by Terry M. Moe, is applied in a comparative analysis of two main elements in the recent Danish administrative reform: the consolidation of 270 municipalities into 98 larger ones, and the creation of five new macro regions with special responsibilities. In contrast to the coherent institutional structure of the municipalities, the level of coherence in the regional reform elements is inappropriate and inefficient. The article shows that the different institutions in the municipalities and the regions can be interpreted as an attempt by the (national) reform parties to prevent other political actors from gaining access to future substantial, as well as institutional, goods.     

The Australian Environmental Policy Agenda

This paper seeks to identify major shifts in the Australian environmental policy agenda over the past fifty years, and discusses the possible causes of and variables affecting agenda change. The issue of what comprises ‘environment’ policy is discussed, with reference to overlaps and intersections with other policy sectors such as agriculture, public health, energy and regional affairs. While the diversity of the environment policy domain complicates any analysis of trends, there have been two persistent trends of (i) an expansion from a more narrowly to a more broadly defined suite of issue (from environment to sustainable development) and incorporation of environment into natural resource management, and (ii) an increasing diversity of policy instruments being used. Consistent with the wide variety of issues confronted, pragmatism and convenience are often as influential as political ideology or underlying trajectories. The drivers of policy change are diverse, including biophysical factors such as drought, political leaders and international policy developments, and punctuations are often better interpreted as intensification or redirections of past policy trajectories.