Doctoral research:
Intergovernmental Relations in Multi-Level Arrangements: Collaborative Public Management in Flanders (2005-2008)

Commissioner

The Ministry of the Flemish Community

Content of the research

Policy networks have become increasingly important for contemporary government. The relationships between governmental actors in such policy networks are, however, understudied. The main research question of this thesis is; how do intergovernmental relations (IGR) function in policy networks. This question consists of two sub questions: what would a proper framework look like – in particular a network approach - to study the latter, and what insights about IGR does such a conceptual framework deliver?

Until recently, the study of IGR focused chiefly on aspects of the formal-legalistic organisation of the intergovernmental arena, like the division of competences and resources, modes of supervision, financial and fiscal relations. Given the limitations of such a structural approach to IGR, it is a logical consequence that attention gradually shifts towards more behavioural and process-oriented tracks. The organisation of and the knowledge about the formal-legalistic frameworks are only useful in order to find the essence of how – regarding issues, topics, problems that cannot be dealt with by one single public actor – these resources from governmental units from different tiers and private actors are connected and brought together in policy processes to achieve a joint and effective response to contemporary challenges?

Based on a review of the IGR-literature, this thesis develops a new framework to study IGR in a network context. The study introduces a network approach consisting of five components (power, resource dependencies, multi-actor, policy process and management), each developed further in a number of elements. This approach is tested and developed further by using a qualitative research strategy - namely a case study design.

The interplay between the development of the network approach and in-depth analysis of two cases – the ‘Project Gentse Kanaalzone’ and the ‘Parkbos Gent’ – results in a conceptual and empirical contribution to the literature.

On the one hand, the study shows that a network approach is useful to analyse IGR in a more dynamic and process-oriented way. The network approach is conducive to gain insight into the way resource distribution creates dependencies between actors and shapes power relations, and how they evolve over time. The framework also enables the researcher to understand how coalitions take shape throughout the process and what power channels they use. The network approach also points out a number of features of actors that can affect the IGR and highlights how the interplay between different factors is actively managed.

On the other hand, the study presents a rich picture of the intergovernmental praxis in the cases studied. The empirical analysis shows, in a detailed manner, how a number of typical Flemish features (like the direct access to final decision makers (mostly at ministerial cabinet level) and political localism) affect the IGR, in which party political channels are of particular relevance. This thesis supplements these typical Flemish features with new insights. Similar to politicians, some civil servants at different tiers also have a local reflex in their actions. The IGR are actively managed by both politicians and civil servants, and they play various roles. Politicians (especially those at the local level) prove to be very active in policy networks, while some civil servants develop strategies and take actions that can be considered political. The study also shows that in order to grasp the IGR in policy networks, a linkage to the intragovernmental relations is necessary (in particular the relations between actors of the Flemish government).

While the findings of the study cannot simply be generalised to the IGR in Flanders, the thesis presents, for the first time, a detailed account of the nature and way policy-making takes shape through IGR in a number of important cases. 

Research team

Promotors: Prof. dr. Geert Bouckaert & prof. dr. Filip De Rynck
Doctorandus: Joris Voets