Non-hierarchical policy coordination in multilevel systems

Abstract

In theory, lower-level governments (provinces, regional governments, or member states) operating in multilevel systems within and beyond the nation-state can choose from a wide repertoire of modes of policy coordination to solve collective problems non-hierarchically. These modes range from unilateral policy emulation over informal intergovernmental agreements to binding interstate law. The modes that governments are willing and capable to use , however, vary considerably across multilevel systems which affects governments’ collective problem-solving capacity. This paper argues that the nature of executive–legislative relations in lower-level governments is crucial to account for this variation. The presence (or absence) of power sharing shapes the willingness of lower-level governments to enter agreements that greatly constrain individual government autonomy. Power-concentrating governments, as opposed to power-sharing ones, tend to avoid such agreements. The type of power sharing affects the capacity to enter agreements that require legislative approval. Compulsory power-sharing governments, as opposed to voluntary power-sharing governments, should find it difficult to enter such agreements, since this type of power sharing invites inter-branch divides. To substantiate these arguments, we apply them to Canada, Switzerland, the United States, and the European Union.