Decentralization is often viewed as a legal and constitutional process, but the reality is far more complex. In multi-level governance systems, the distribution of power between central and regional governments is not solely determined by legal frameworks—it is shaped by intricate political bargaining and implementation challenges. While existing literature primarily focuses on the formal (de jure) aspects of decentralization, this approach overlooks the extent to which decentralization agreements are successfully carried out in practice.
A recent study by, Javier Martínez-Cantó and Jorge M. Fernandes, titled “The Implementation of Decentralization Reforms in Multi-Level Systems,” published in the Journal of European Public Policy, sheds light on this gap. They argue decentralization as a two-stage process: first, political elites negotiate and agree on legal reforms to reshape the balance of power; second, these agreements must be implemented. If implementation falters, decentralization remains incomplete or even fails altogether. Drawing on Spain’s decentralization experience from 1980 to 2022, Martínez-Cantó and Fernandes highlight key political dynamics that influence implementation outcomes. Their findings suggest that without effective implementation, decentralization remains a political promise devoid of substantive outcomes
Decentralization as a Two-Step Process
The paper challenges the traditional assumption that once decentralization agreements are made, their implementation is automatic. Instead, the authors argue that implementation is subject to political bargaining and often faces obstacles that delay or even reverse reforms.
The authors adopt a mixed-methods approach to analyze Spain’s decentralization process, focusing on Reales Decretos de Traspaso (RDTs)—legal documents that formalize the transfer of powers from the central government to regional administrations. Using a quantitative dataset of over 1,968 RDTs, they examine how political factors—such as co-partisanship, ideological preferences, and government changes—affect the number and timing of policy transfers. The study employs negative binomial regression models to assess the likelihood of implementation under different political conditions. Their analysis is complemented by a longitudinal approach, tracing shifts in decentralization policy across multiple governments and political contexts over four decades.
Key Findings: Political Determinants of Implementation
- Impact of Government Change: A change in national government between the agreement and implementation phases significantly disrupts the process. When a different party takes power before reforms are fully executed, the likelihood of delays, renegotiation, or outright abandonment increases. Political transitions introduce new priorities, making decentralization a casualty of shifting agendas.
- Co-Partisan Governments Drive Success: Regions with co-partisan governments at the national and regional levels see higher rates of successful implementation. When both levels are controlled by the same party, decentralization reforms proceed more smoothly due to greater political will. In contrast, ideological or partisan differences create roadblocks.
- National Government’s Ideological Stance: National governments that support decentralization ideologically are more likely to implement reforms effectively. Political parties that favour power-sharing between central and regional governments are committed to translating agreements into action. Governments skeptical of decentralization tend to slow or limit implementation.
- Limited Impact of Ethnoterritorial Parties: The bargaining power of ethnoterritorial parties in the national legislature has little impact on decentralization implementation. While these parties advocate for regional autonomy, their influence does not necessarily translate into concrete policy transfers. The power to implement remains in the hands of national executives, who may prioritize or ignore decentralization based on political calculations.
- Effect of Single-Party Absolute Majorities: A single-party absolute majority at the national level often hinders decentralization implementation. When a ruling party does not need regional support to govern, there is less incentive to push through decentralization agreements. Minority or coalition governments are more likely to uphold decentralization commitments as part of political bargaining with regional actors.
- Decentralization Reforms Occur in Waves: The years immediately following regional constitutional reforms see an increase in policy transfers, but momentum slows over time. In Spain, the mid-1980s and late 1990s were particularly active periods, while subsequent years saw a decline in implementation efforts.
Conclusion
Martínez-Cantó and Fernandes make a compelling argument that decentralization reforms are only effective if implemented properly. While agreements may look promising on paper, their success hinges on the political will and commitment of the actors at different government levels that are responsible for translating them into practice. Political parties are central to shaping the success of these reforms, and their preferences, actions, and willingness to support decentralization often determine whether these reforms will flourish or fail. The study calls for a shift in focus among policymakers, scholars, and civil society from merely drafting legal agreements to scrutinizing the practical aspects of decentralization’s execution.
The study, although centered on Spain, provides important lessons for countries facing ethnoterritorial conflicts and decentralization challenges, including Canada, Belgium, the UK, India, Nigeria, and Indonesia. These countries, each with diverse societies, must navigate the complexities of managing tensions between central and regional powers. For decentralization to succeed, it is crucial to secure political support from both national and regional elites, as well as a sustained commitment from the government throughout the entire implementation process.
For decentralization to be a meaningful tool for governance—particularly in addressing regional disparities and ethnic tensions—it must be supported by strong political will, institutional safeguards, and mechanisms that ensure agreements translate into real, tangible benefits for citizens. By addressing the gaps between legal agreements and implementation, countries can make decentralization a more effective and enduring solution for promoting governance, equity, and stability.
You can read the full paper here:
Martínez-Cantó, Javier & Fernandes, Jorge. 2025. The implementation of decentralisation reforms in multi-level systems. Journal of European Public Policy. 1-29. https://doi.org/10.1080/13501763.2024.2448513
On Open Access version of the paper is available here.
