The Impact of Metagovernance on Local Governance Networks. Lessons from Danish Employment Policy

This article analyses the impact of metagovernance on the functioning of local governance networks. It does so by comparing the functioning of four local governance networks in the field of local employment policy in Denmark. Between 2007 and 2009, two of these networks were linked to jobcentres in which the municipality and a state agency shared responsibility for employment policy, while the other two were linked to jobcentres in which the municipality had full responsibility. We explore two types of metagovernance that the local governance networks were subject to: general, hands-off metagovernance consisting of the assignment of full responsibility to the municipality alone, or of shared responsibility to the municipality and the state jointly; and tailored and fine-tuned metagovernance directed towards only one or a few networks and their corresponding jobcentre(s). Our findings suggest that, as network governance becomes a mature phenomenon, the importance of metagovernance increases, particularly for strategic reasons. More specifically, we find that the functioning of local governance networks is only marginally affected by acts of general, hands-off metagovernance, such as the different organisational set-ups ascribed to the jobcentres. More influential are the hands-on network management tools, such as direct consultancy. Hands-on metagovernance instruments, however, are more costly for the metagovernor. Whichever tool is applied, the local actors' responsiveness to metagovernance is significant for the outcome.     

DO POLICY NETWORKS LEAD TO NETWORK GOVERNING?

This paper challenges a common understanding, implicit in many governance studies, that once policy networks are in place, the form of governing that follows is network governing. It is argued that policy networks may be understood as a way of organizing stakeholders and only under specific conditions may the governing mode in which the networks operate be termed network governing. Consequently, policy networks may subsist under other governing modes, for example, under a hierarchical mode. The present study uses actor‐centred case studies in the area of Danish employment policy. Employment policy in Denmark is municipally implemented and the study found that the local governing mode was determined mainly by the municipality’s approach to local co‐governing. Less important, but nevertheless significant, is the capacity and interest of key private actors. Thus it is argued that nationally mandated local policy networks are insufficient in themselves to assure network governing in all settings. The reasons hierarchical governing modes prevail over those of network governing are identified and discussed in terms of agency and structure.     

THE FIGHT OVER DANISH NATURE: EXPLAINING POLICY NETWORK CHANGE AND POLICY CHANGE

The policy network approach is widely recognized for its ability to describe different networks. Adding the concepts ‘policy image’ and ‘cleavage in the party system’ makes it possible to explain policy network change as well as policy change. This argument is supported by a comparison of the Danish decision in 1960 to straighten Denmark's largest river, the Skjern River, to gain farmland, and the 1987 decision to restore the river and recreate the wild nature of the river valley. The fight over Danish nature has historically been a fight between a land reclamation network and a nature protection network – two networks trying to promote different policy images. Coupled with a new (environmental) cleavage in the party system, new policy images connected to the Skjern River decisions led to radical policy changes.     

Measuring Network Structure

Networks have been a research issue in public administration for many years. Because of the difficulty of measuring networks, they have often been treated as a metaphor, a conceptual scheme, or a management technique (networking). The work on networks in public administration is almost all of the case study and rarely of the comparative case variety. This article presents the results of two studies of networks using social network analysis as a technique for studying structural relationships between organizations. This technique is utilized to show both the research and practical potential of network analysis as an evaluation methodology for organizations that jointly produce a service. In the first study, the network provides mental health services to seriously mentally ill adults. In the second study, the network attempts to prevent young people from abusing drugs and alcohol. The two studies were undertaken for different reasons. The first was an elaborate comparative study of four mental health networks and the relationship between network design and performance. The second was a much simpler consulting effort to help a local prevention partnership create linkages to other community organizations. However, in both of the studies the goal was to measure the structural ties in the network based on various types of relationships that exist in a given field of practice. These linkages are ties that bind the network together and become data that can be used to compare networks on their degree and type of integration. The article makes the argument that links in a network are one way that scholars can compare networks in similar or different policy domains. At the same time, the article argues that analysing linkages in an organization's network is an effective and practical means of determining how well integrated any given organization is in a network.     

Acting discursively: the development of UK organic food and farming policy networks

This paper documents the early evolution of UK organic food and farming policy networks and locates this empirical focus in a theoretical context concerned with understanding the contemporary policy-making process. While policy networks have emerged as a widely acknowledged empirical manifestation of governance, debate continues as to the concept's explanatory utility and usefulness in situations of network and policy transformation since, historically, policy networks have been applied to "static" circumstances. Recognizing this criticism, and in drawing on an interpretivist perspective, this paper sees policy networks as enacted by individual actors whose beliefs and actions construct the nature of the network. It seeks to make links between the characteristics of the policy network and the policy outcomes through the identification of discursively constructed "storylines" that form a tool for consensus building in networks. This study analyses the functioning of the organic policy networks through the discursive actions of policy-network actors.     

Policy Network Creation: The Case of Energy Efficiency

What can broadly be described as a policy community has been established with the central purpose of co-ordinating policy implementation in the field of energy efficiency in domestic buildings. A complete understanding of the processes of policy network formation cannot be achieved in this case without a thorough analysis of the construction of cognitive structures which influence the behaviour of actors and underpin the policy network. Discourse analysis is an effective means of studying cognitive structures. An understanding of the creative and unpredictable role of agents such as ministers is also important, suggesting that the study of policy network formation can be enlightened by a historical institutionalist approach that involves a role for agency as well as structural influences. The formation of the energy efficiency policy network is studied in the context of a critique of an earlier 'economic' institutionalist case study of policy network formation.     

Network structures and network effects across management and policy contexts: A systematic review

The wide application of networks in public administration has been driven by the practical need to address increasingly complex management and policy problems. To understand the outcomes of network structures, we reviewed empirical network research and examined the effects of six network structural properties across the five most studied policy domains. We found that certain structural properties such as global connectedness were consistently associated with positive network effects. Other structures such as brokerage/structural holes provided mixed findings, depending on the policy domain. Overall, our field is still in the early stages of developing research on network effects. The number of hypotheses on both node-level and system-level effects in any policy domain was relatively small. Most studies focused only on a single network at a single point in time, and thus very little work currently exists that examines the influence of contextual factors and their combined effects with network structures.     

Urban Governance And Policy Networks: On The Urban Political Boundedness of Policy Networks. A French Case Study

The paper analyses the changes within two policy domains in one French city. The aim is not so much to demonstrate the role of policy networks but to stress the importance of their articulation within a given political space. The paper does not conclude on the emergence of a new type of network governance but rather shows how urban political élites have deliberately encouraged the formation of policy net-works in Rennes. That strategy makes sense in their attempt to strengthen an urban collective actor. Policy networks therefore should not be analysed autonomously as their impact is largely shaped by the interest and collective goals of the existing regime of governance in Rennes.     

NETWORKS: REIFIED METAPHOR OR GOVERNANCE PANACEA?

This article will discuss the contribution of Rod Rhodes to the research on networks. I will focus on networks as a typology of state/society relations and as a particular form of governance. It is not only here that Rhodes has left his deepest mark; most research on networks still falls in one of the two sub‐fields. The typology of policy networks, which he developed with David Marsh more than 15 years ago, has become a classic and still forms a major reference point for studies on public policy‐making. Rhodes also pioneered the concept of network governance in the study of British politics to capture the profound changes in the Westminister model since the late 1970s. Regarding more recent developments, Rhodes has been among the first to discuss the reflexivity of networks, introducing some postmodernist thinking into public administration research. Finally, Rhodes has helped advance the ‘ethnographic turn’ in network studies.     

Policy networks and the GM crops issue: assessing the utility of a dialectical model of policy networks

A dialectical model of policy networks is deployed to analyse policy change in the area of GM crops in the UK. The model uses an analysis of the interaction between agents and structure, network and context and network and outcomes to understand and explain how policy change has occurred. A key advantage of the model is that it increases understanding of network transformation, explanation of which has been an alleged weakness of the policy network approach. However, this case study does throw up some weaknesses with the model, including the tendency of the model to emphasize the role of 'insider' agents and downplay the role of 'outsiders' in the policy process.     

Policy networks and policy change in organic agriculture: a comparative analysis of the UK and Ireland

This paper takes a comparative case–study approach, located within the literature on policy networks, to organic agriculture policy in the United Kingdom and Ireland since the late 1980s. An examination of policy development for the organic sector focuses primarily on regulatory arrangements. The core of the analysis applies some prominent themes in the policy network literature to the organic sector: the debate about sectoral and sub–sectoral networks, the relationship between networks, context and outcomes, and the role of the state and ideas in promoting policy change.     

OPEN SYSTEMS AND CLOSED NETWORKS: POLICY NETWORKS AND THE EMERGENCE OF OPEN SYSTEMS IN LOCAL GOVERNMENT

New information and communications technologies (ICTS) continue to consume an increasing proportion of local government expenditure. Contemporary explanations of why and how these technologies are introduced into organizations, however, are limited to accounts of strategic decisions taken by individual organizations. This article offers a new understanding of why and how ICTS are introduced into organizations by developing the emergent concept of policy networks to analyse the adoption of open systems in local government. In developing this analysis, the article advances the policy networks concept by arguing for a range of sectoral sub-networks which have emerged around the broader ICT network. Following from this, it identifies the principal actors in the local government ICT network, and their relationships. Finally, it presents a case study of the network in action, in the form of an analysis of the adoption of open systems technology in one metropolitan borough council.     

Organizing Babylon - On the Different Conceptions of Policy Networks

A 'Babylonian' variety of policy network concepts and applications can be found in the literature. Neither is there a common understanding of what policy networks actually are, nor has it been agreed whether policy networks constitute a mere metaphor, a method, an analytical tool or a proper theory. The aim of this article is to review the state of the art in the field of policy networks. Special attention is given to the German conception of policy networks which is different from the one predominant in the Anglo-Saxon literature. While British and American scholars usually conceive policy networks as a model of state/society relations in a given issue area, German works tend to treat policy networks as an alternative form of governance to hierarchy and market. It is argued that this conception of policy networks goes beyond serving as a mere analytical tool box for studying public policy-making. Yet, both the German and the Anglo-Saxon conception of policy networks face a common challenge: first, it still remains to be systematically shown that policy networks do not only exist but are really relevant to policy-making, and second, the problem of the ambiguity of policy networks has to be tackled, as policy networks can both enhance and reduce the efficiency and legitimacy of policy-making.     

Network Powers: strategies of change in the multipolar system

Abstract

The multipolarity of the 21st century is fundamentally different from that of its harbingers because in the past decade change and innovation have been induced through sites of negotiation and by the establishment of intergovernmental foreign policy networks. New powers like Brazil, China and India have gained relative weight thanks to their status as agenda setters, brokers and coalition builders. This paper examines the relevance of different foreign policy networks such as India–Brazil–South Africa ( ibsa ) and Brazil–South Africa–India–China ( basic ) for their strategic approaches and argues that they are crucial vehicles for their ascension. Drawing on the work of Hafner-Burton et al, who raised the question of how states increase their power by enhancing their network positions, a typology of foreign policy networks is proposed: mediation, advocacy and substitution networks play important roles in today’s shifting global order. The paper analyses how the different network types work together and how particular states have adapted better to the new environment than others.     

Business,Brokers and Borders: The Structure of West African Trade Networks

Abstract

The objective of this paper is to show how a formal approach to networks can make a significant contribution to the study of cross-border trade in West Africa. Building on the formal tools and theories developed by social network analysis, we examine the network organisation of 136 large traders in two border regions between Niger, Nigeria and Benin. In a business environment where transaction costs are extremely high, we find that decentralised networks are well adapted to the various uncertainties induced by long-distance trade. We also find that long-distance trade relies both on the trust and cooperation shared among local traders, and on the distant ties developed with foreign partners from a different origin, religion or culture. Studying the spatial structure of trade networks, we find that in those markets where trade is recent and where most of the traders are not native of the region, national borders are likely to exert a greater influence than in those regions where trade has pre-colonial roots. Combining formal network analysis and ethnographic studies, we argue, can make a significant contribution to the current revival of interest in cross-border trade in the policy field.     

The Tangled Webs of Westminster and Whitehall: The Discourse, Strategy and Practice of Networking Within the British Core Executive

In this paper we identify and seek to resolve a certain paradox in the existing litera-ture on networks and networking. Whilst earlier policy network perspectives have tended to emphasize the structural character of networks as durable, dense and relatively static organization forms, the more recent strategic network literature emphasizes the flexible, adaptive and dynamic quality of networking as a social and political practice. However, neither perspective has yet developed a theory of network formation, evolution, transformation and termination. In this paper, we seek to rectify this omission, advancing a 'strategic relational' theory of network dynamics based on a rethinking of the concept of network itself. We illustrate this perspective with respect to the policy process centred in and around Westminster and Whitehall, drawing on a series of semi-structured interviews with ministers and officials from four departments.     

What Makes a Key Player in Interorganizational Social Policy Networks? The Case of Uruguay

ABSTRACT

Networks of organizations involved in public policy implementation require strong interaction, concerted action and high degrees of collaboration to be effective. However, little is known about how different types of organizations involved in implementation of multi-sectoral social policies interact in these networks. In this article the relationship between organizational characteristics and network position is explored, as well as how the intensity of collaborations can also determine organizations’ involvement in networks. The nature of funding (public/private) and the remit of activity of organizations are found to determine their influence and importance in social policy networks. Furthermore, the network position of the organizations also depends on the level of intensity of their interactions. These results can guide public administrators when developing and promoting networks to involve a particular type of actor and also policymakers as to which types of ties are more aligned with the implementation of a particular policy.     

MANAGING NETWORKS IN THE PUBLIC SECTOR: A THEORETICAL STUDY OF MANAGEMENT STRATEGIES IN POLICY NETWORKS

Public policy usually develops in complex networks of public, quasi-public and private organizations. It is now generally accepted that these networks set limits to the governance capability of the administration. A good deal less is known about the opportunities which policy networks offer for tackling social and administrative problems. This article deals with the way network management enables government organizations to benefit from networks. Building on the theoretical concepts of‘networks’and‘games’, two forms of network management are identified: game management and network structuring. Four key aspects can be identified for both of these management forms: actors and their relations, resources, rules and perceptions. At the same time, criteria for the assessment and improvement of network management are examined. The article concludes with a consideration of the limits of network management.     

POLITICS BY HEURISTICS: POLICY NETWORKS WITH A FOCUS ON ACTOR RESOURCES,AS ILLUSTRATED BY THE CASE OF RENEWABLE ENERGY POLICY UNDER NEW LABOUR

Policy network analysis is criticized for being a ‘heuristic’ device, yet ‘heuristic’ methods may be essential to achieve detailed understandings of specific policy outcomes. Rational choice modelling alone cannot perform a similar function. This paper develops a ‘heuristic’ policy network approach that focuses on the analysis of actor resources. Changing contexts can alter the resource distributions of actors within a policy community. This can lead to new policy outcomes. Policy networks can therefore be rescued from criticisms made by, for example, Dowding, by re‐visiting Rhodes's earlier emphasis on analysis of actor resources. This approach is illustrated in the case of UK renewable energy policy under the UK government of New Labour. Changing contexts have strengthened the resources of the main renewable energy interest groups to achieve higher targets and more technology‐specific means of financial incentives. The Renewable Energy Association has achieved legislation favouring feed‐in tariffs as is the practice elsewhere in Europe for small renewable generators.