Structural Reform in Denmark, 2007–09: Central Reform Processes in a Decentralised Environment

Abstract

This paper investigates the policy process leading to the rapid and somewhat surprising introduction of a major structural reform in Denmark in 2007. The reform reduced the number of regional and local authorities and changed their responsibilities and financing. The research question is why a reform of this magnitude and scope was introduced in a Scandinavian country at this point in time in spite of previous failures and in spite of likely resistance from actors with vested interests in the existing structure? The article explains the initiation of the reform by a rare opening of a window of opportunity due to a number of contextual factors. Once the window was opened the process changed to one of opportunistic pursuit of institutional and personal interests. Skilful management of the reform process by central actors was important for getting the decision through possible resistance points.

Key Words:

• Structural reform, Denmark, policy process

Notes

1 ScienceDirect (keywords: ‘municipalities’ and ‘reform’); ISI/SSCI (keywords: ‘municipalities’ and ‘reform’ and ‘Europe’); JSTOR (keywords: ‘structural reform’ and ‘municipalities’ and ‘policy process’ and ‘Europe’).

2 This section is based on Bundgård & Vrangbæk (2007). Interview data was originally collected by Ulrik Bundgård and Mikkel Gram for dissertation projects at the University of Copenhagen (published as: Bundgård, U. (2005) Regeringen har ingen planer om at foretage ændringer i den kommunale struktur [The government has no plans of changing the municipal structure]. Dissertation, University of Copenhagen).

3 ‘K frygter tvungne kommune-fusioner’, Berlingske Tidende, 17 November 1999; Østergaard, ‘Udspil: K: Farvel til amterne’, Jyllands-Posten, 29 April 2001; ‘Ledende artikel: Kommunal stordrift’, Jyllands-Posten, 30 March 2000.

4 Sonne, ‘Flertal for færre kommuner’, Berlingske Tidende, 14 July 2002.

5 ‘Amterne fik dødsstødet ved et tilfælde’, Mandag Morgen, nr. 8, 26 August 2002.

6 ‘Amterne fik dødsstødet ved et tilfælde’, Mandag Morgen, 26 August 2002.

7 Steen Winkel and Albret, ‘Amterne fik dødsstødet ved et tilfælde’, Mandag Morgen, nr. 28, pp. 6–12. 26 August 2002.

8 Phil-Andersen, ‘KL-formand kræver afklaring’, Jyllands-Posten, 27 July 2002; ‘Borgmestre kræver indgreb’, Berlingske Tidende, 2 August 2002.

9 Interview with Christian Mejdahl.

10 Elbæk Maressa and Ditlev, ‘Amter: K Kræver amterne nedlagt straks’, Jyllands-Posten, 8 August 2002; ‘Struktur: Politikere i vildrede om amter’, Jyllands-Posten, 9 August 2002; Rødgaard Thomsen, ‘Reformtanker deler konservative’, Danske Kommuner, 2 October, no. 29, 2003.

11 In the municipal and county elections in 2001, the Social Democrats and the Liberal Party together won 3217 of a total of 4667 seats in the 271 municipal councils, corresponding to approx. 70 per cent. They won 268 of 374 seats in the county councils, corresponding to approx. 72 per cent. After the constitution of the new municipal boards and county councils, the Liberal Party had 136 mayors, while the Social Democrats had 84. Statistics Denmark (http://www.statistikbanken.dk/statbank5a/default.asp?w=1280) and Slanina Pedersen, ‘Kommunalpolitisk landkort 2002’, Danske Kommuner, nr. 39, 16 August 2002.

12 Dørge, ‘Bagslag for Venstre’, Weekendavisen, 9 January 2004.

13 That the regulation of the health sector is a motivation for the efforts to place a reform on the political agenda is also expressed by Jens Rohde in Weekendavisen (the Danish weekly): Regionskrigen, 2 August 2002.

14 Interview with Johannes Due.

15 Lecture by Johannes Due, Department of Political Science, University of Copenhagen, 16 March 2005.

16 Steen Winkel and Albret, ‘Strukturkommissionens eksperter: Mindretalsudtalelse var uundgåelig’, Mandag Morgen, nr. 29, pp. 10–15, 6 September 2004. Interview with Poul Erik Mouritzen.