The crux of decentralization is that a multilevel public sector can produce better (more responsive and efficient) outcomes compared to a centralized public sector. An underlying–often unstated– assumption is that intergovernmental coordination mechanisms are in place to make sure that governments at different levels cooperate and coordinate their efforts.
In order to shed light on this topic, a recent report by LoGov reviewed the effectiveness of intergovernmental coordinating mechanisms across local, regional, and national governments in 15 countries worldwide. This in-depth analysis reveals how different governance models shape collaboration between government levels, emphasizing the role of effective, coordinated intergovernmental relations in enhancing service delivery and governance resilience.
The report evaluates diverse practices in countries including Italy, Germany, Spain, Switzerland, Austria, Poland, Croatia, Albania, Moldova, South Africa, Ethiopia, Argentina, India, Australia, Malaysia, and Canada. By uncovering key strategies that foster cooperation, balance urban-rural interests, and empower Local Government Associations (LGAs) in policy advocacy, the report provides a valuable roadmap for strengthening intergovernmental frameworks globally.
Diverse Structures of Intergovernmental Relations
Intergovernmental relations are fundamentally organized into two important dimensions: vertical and horizontal, which can significantly enhance governance:
- Vertical intergovernmental relations refer to the interactions that occur between different levels of government, such as national and subnational entities. Local governments (LGs) can effectively advocate for their interests through structured channels, including national, regional, or specialized associations and consultation bodies. These formal relationships empower LGs to engage meaningfully with higher levels of government.
- Horizontal intergovernmental relations emphasize collaboration among local governments to achieve shared objectives. By working together through inter-municipal initiatives—such as regional conferences, joint utility services, budgetary collaborations, or coordinated municipal departments—local governments can pool resources and expertise. This collaborative approach is especially beneficial for smaller regional local governments (RLGs), as it often provides a viable alternative to amalgamation, allowing them to maintain their identity while maximizing efficiency.
Combining both dimensions of intergovernmental relations leads to more effective governance. It promotes cooperation on shared responsibilities and facilitates better policy implementation across various levels of government, ultimately contributing to the overall success of public administration and community development.
Role of Local Government Associations (LGAs)
Local Government Associations (LGAs) play an essential role in fostering intergovernmental relations by effectively representing the interests and voices of member local governments (LGs) to national and regional authorities. With a rich history of engaging in multilevel governance, LGAs possess strong political influence and extensive reach across the country. Moreover, LGAs are instrumental in advocating for local governments’ interests to a diverse array of stakeholders, including parliament, the judiciary, the business community, and international organizations. To optimize their effectiveness, it is beneficial for LGAs to establish a well-structured framework that includes permanent committees or professional forums comprising municipal employees. This structure not only enhances collaboration but also allows LGAs to harness collective knowledge and expertise, making their advocacy efforts even more impactful. By fostering these connections and strengthening their organizational foundations, LGAs can significantly contribute to the success and well-being of local governments.
Supervision Mechanisms by Higher Levels of Government
Higher levels of government play a crucial role in supervising and collaborating with Local Government Areas (LGAs). These mechanisms are designed to foster cooperation across different tiers of government, ensuring that LGAs and their representatives have opportunities to contribute their perspectives in consultation and coordination bodies, such as intergovernmental councils, committees, and conferences. While their input is informative rather than binding, it represents a valuable opportunity for LGAs to engage in the decision-making process.
To address the complexities of these relationships, there have been constructive policy responses aimed at enhancing the internal representation and decision-making bodies within LGAs. Additionally, promoting the formation of special interest groups and associations empowers smaller and more rural local governments to have a voice in matters that affect them directly. For example, in Croatia, the Parliamentary Board for Local Government includes diverse representatives from all three categories of local governments, exemplifying a commitment to inclusive governance.
These high-level intergovernmental relations mechanisms are vital for fostering consensus on widely accepted norms and standards. They ensure that all LGAs, regardless of their political affiliations or economic influence, are heard before legislative changes occur. By building on these foundations, we can enhance cooperation and ensure that governance is more equitable and responsive to the needs of all communities.
Addressing the Heterogeneity of Local Interests
The diversity of local interests, shaped by territorial, socioeconomic, and political differences, impacts how urban (ULGs) and rural local governments (RLGs) are represented in intergovernmental relations (IGR) and within Local Government Associations (LGAs). Larger ULGs often have more influence due to their resources and proximity to national politics, which can marginalize smaller, rural LGs in policy negotiations. While some LGAs strive to balance these interests, such as Switzerland’s Bernese Association of Municipalities, this heterogeneity can limit unified advocacy efforts. In response, specialized bodies have emerged to advocate for rural and smaller LGs, like Italy’s Council of Local Authorities and Spain’s Basque Council for Local Public Policies, though these often have limited power due to their advisory roles. The Ethiopian Association of Cities illustrates that financial independence is crucial for LGAs to effectively represent local interests and maintain credibility.
The report suggests establishing specialized bodies or councils within LGAs to advocate for rural and smaller LGs, fostering a balanced approach to policy development.
Addressing Complex Issues through Coordinated Multilevel Approaches to Service Delivery
Italy and Germany highlight the significance of both horizontal and vertical coordination in tackling complex challenges such as migration, integration, depopulation, and digitalization. These strategies aim to prevent imbalances between urban and rural local governments. Similarly, Switzerland and Austria, with a focus on primary education and compulsory schooling, stress the necessity of complex systems that promote both vertical and horizontal cooperation to align the needs and priorities of urban and rural local governments. Key factors for success include regular information exchange among government levels, reconciliation of interests between rural and urban areas, and the formation of municipal associations to collaboratively develop and promote business locations. Mutual interest, political will, and commitment are essential for successful horizontal cooperation, while support from higher levels of government is crucial for advancing complex initiatives. Overall, these approaches underscore the importance of coordinated multilevel strategies for effective service delivery in addressing complex issues.
Experiences and Lessons Learned from the Practices of Formalized Intergovernmental Cooperation (e.g. Intergovernmental Conferences)
Intergovernmental cooperation among different levels of government offers valuable opportunities for collaboration through formal entities such as conferences, committees, commissions, councils, forums, and other consultation bodies. These organizations effectively gather representatives from various governmental tiers to engage in meaningful discussions about policies and challenges that impact local governments. Notable examples include Italy’s Conference of the State, Cities, and Local Autonomies, Poland’s Council of Local Authorities, Albania’s Joint Commission of the Government and Territorial Self-Government, and Spain’s Basque Council for Local Public Policies.
The structure, roles, and decision-making processes of these bodies exhibit commonalities across countries, bringing together key stakeholders in the multilevel governance system. Their advisory roles provide vital non-binding opinions to higher levels of government, promoting a constructive dialogue. Establishing these mechanisms is essential for enhancing the relationship between the national government and local authorities, ensuring local governments’ perspectives are acknowledged in relevant policy discussions.
The effectiveness of these consultation bodies is greatly enhanced when local governments (LGs) are engaged early in the policymaking process through Local Government Associations (LGAs). By fostering inclusive composition and democratic decision-making processes, these bodies can strengthen their advocacy efforts. Moreover, the positive impact of intergovernmental consultation bodies largely depends on the individuals involved. Their proactive engagement and early involvement of local government representatives can significantly shape the agenda, ensuring that pertinent issues are addressed in discussions with national government representatives. By nurturing these collaborative relationships, we can create a more effective multilevel governance system.
Recommendations and Future Focus
Based on these findings, the report offers several recommendations for strengthening intergovernmental relations:
- Inclusive Representation: Ensure that LGAs represent both urban and rural LGs effectively, particularly when engaging in national and regional discussions.
- Empowering Smaller LGs: Develop dedicated bodies to advocate for rural and smaller LGs within larger governmental structures.
- Strengthening Cooperation over Supervision: Shift focus from supervision to cooperation, allowing LGs greater autonomy and shared decision-making roles.
- Enhancing Dialogue Mechanisms: Improve the effectiveness of IGR mechanisms by making them more consultative and less reliant on non-binding recommendations.
- Promoting Financial Independence: For LGAs to be credible advocates, they must have stable financial support, as shown by successful models like Ethiopia’s Association of Cities.
- Supporting Post-COVID Recovery: Integrate LGs fully in the planning and implementation of post-pandemic recovery efforts, capitalizing on the principle of subsidiarity.
The LoGov project’s findings serve as a critical resource for policymakers, government officials, and LGAs seeking to optimize IGR frameworks. By fostering a balanced, inclusive, and cooperative environment, governments can strengthen local governance and enhance service delivery, ultimately creating a more resilient and responsive public sector.
The complete analysis is available on the LoGov project website under the title Intergovernmental Relations of Local Government, edited by Elton Stafa from NALAS (Network of Associations of Local Authorities of South East Europe), and Karl Kössler and Theresia Morandell from Eurac Research.
