Territorial reforms in Europe: effects on administrative performance and democratic participation

ABSTRACT

Territorial reform is the most radical and contested reorganisation of local government. A sound evaluation of the outcome of such reforms is hence an important step to ensure the legitimation of any decision on the subject. However, in our view the discourse on the subject appears to be one sided, focusing primarily on overall fiscal effects scrutinised by economists. The contribution of this paper is hence threefold: Firstly, we provide an overview off territorial reforms in Europe, with a special focus on Eastern Germany as a promising case for cross-country comparisons. Secondly, we provide an overview of the analytical classifications of these reforms and context factors to be considered in their evaluation. And thirdly, we analyse the literature on qualitative performance effects of these reforms. The results show that territorial reforms have a significant positive impact on functional performance, while the effects on participation and integration are indeed ambivalent. In doing so, we provide substantial arguments for a broader, more inclusive discussion on the success of territorial reforms.

KEYWORDS:

• Municipal amalgamation effects
• territorial reform
• municipal mergers
• local government performance
• administrative reforms

Disclosure statement

No potential conflict of interest was reported by the authors.

Notes

1. For state of the art and further reference, see Alders/Geertsema 2016 and Blom-Hansen et al. 2016.

2. Even the authors of this paper (in different constellations) have been often called upon by the Land governments to provide their expert opinion on reform ventures (Bogumil and Ebinger 2012; Bogumil, Kintzinger, and Mehde 2014; Bogumil 2016; Kuhlmann, Seyfried, and Siegel 2017). Kuhlmann, Seyfried, and Siegel (2017) conducted a (meta) analysis of 83 scientific studies and other research (i.e. Court of Audit) allowed to expand the content of the discussion around the reform impacts, while taking into account also different methods, approaches, time frames, and interest groups.

3. Refer to the OECD Country Profiles for an overview of the countries where the municipal system is organised into one or two level: http://www.oecd.org/regional/regional-policy/country-profiles.htm.

4. In the municipal assemblies, known also in Brandenburg and Schleswig-Holstein until the 20th century, all citizens of the municipality eligible to vote can take legally binding decisions upon issues concerning the municipality. These assembly systems do not foresee a municipal council.

5. For a detailed critique of the methods and design, see Kuhlmann, Seyfried, and Siegel 2017, 46ff.

Additional information

Notes on contributors

Falk Ebinger

Falk Ebinger is Assistant Professor at the Institute for Public Management and Governance at Vienna University of Economics and Business (WU Wien), Austria. His research focuses on the governance of, as well as leadership and behaviour within, public administrations; bureaucratic elites and administrative performance; and reform of public sector organisations. He has published in journals including International Review of Administrative Sciences, Local Government Studies, Politische Vierteljahresschrift and der moderne staat.

Sabine Kuhlmann

Sabine Kuhlmann is Professor of Public Administration and Organization at the Faculty of Economics and Social Sciences at University of Potsdam, Germany. She is Vice-Chair of the German National Regulatory Control Council, Vice-President for Western Europe of the International Institute of Administrative Sciences (IIAS), and Vice-President of European Group for Public Administration (EGPA). She is deputy editor of the International Review of Administrative Sciences, and has published in journals including Public Administration Review, Public Management Review, and Local Government Studies. She has recently co-authored, with Hellmut Wollmann, Introduction to Comparative Public Administration (Kuhlmann and Wollmann 2014; 2nd ed. 2019).

Joerg Bogumil

Jörg Bogumil is Professor of Public Administration, Regional and Local Policy at the Faculty of Social Science at University of Bochum, Germany. His research focuses on the modernization of local and regional administrations, regionalisation processes and the municipal budgetary crisis. His most recent publications cover, among other subjects, the new financial management of municipalities, new governance structures in German universities and the management of the recent refugee crisis.