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Administrative Reform – Arguments and Values

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Administrative Reform – Arguments and Values Administrative reform – Arguments and Values Administrative reform – Arguments and values Hallgeir Aalbu, Kai Böhme and Åke Uhlin NORDREGIO 2008 Nordic Research Programme 2005-2008. Report 6 ISSN 1654-2290 Nordregio P.O. Box 1658 SE-111 86 Stockholm, Sweden [email protected] www.nordregio.se www.norden.se Nordic co-operation takes place among the countries of Denmark, Finland, Iceland, Norway and Sweden, as well as the autonomous territories of the Faroe Islands, Greenland and Åland. The Nordic Council is a forum for co-operation between the Nordic parliaments and governments. The Council consists of 87 parliamentarians form the Nordic countries. The Nordic Council takes policy initiatives and monitors Nordic co-operation. Founded in 1952. The Nordic Council of Ministers is a forum of co-operation between the Nordic governments. The Nordic Council of Ministers implements Nordic co-operation. The prime ministers have the overall responsibility. Its activities are co-ordinated by the Nordic ministers for co-operation, the Nordic Committee for co-operation and portfolio ministers. Founded in 1971. Stockholm, Sweden 2008 4 NORDIC RESEARH PROGRAMME 2005-2008. REPORT 6 Contents Contents ...............................................................................................................................5 Preface..................................................................................................................................7 Author’s Preface...................................................................................................................9 Summary ..............................................................................................................................9 1. Introduction .................................................................................................................... 13 Research questions ......................................................................................................... 13 Research overview..........................................................................................................13 Project design ................................................................................................................. 15 This report ...................................................................................................................... 16 2. Theoretical and conceptual points of departure............................................................... 17 3. Parallel Processes ...........................................................................................................19 Denmark – a solution finds its problem .......................................................................... 20 Finland – government reform initiative........................................................................... 23 Norway – political deadlock ........................................................................................... 26 Sweden – reform proposals from below.......................................................................... 29 Iceland – reforms if locally initiated ............................................................................... 31 The Faroe Islands – a reform is emerging ....................................................................... 33 Greenland – the largest municipalities in the world ........................................................ 35 Åland – transfer of tasks to the region ............................................................................ 36 4. Typology of arguments...................................................................................................38 Democracy...................................................................................................................... 39 Efficiency and co-ordination........................................................................................... 44 Economic growth and regional development .................................................................. 50 Process............................................................................................................................ 53 5. Understanding the arguments ......................................................................................... 56 Our perspective...............................................................................................................56 State of differences ......................................................................................................... 57 The main arguments and their popularity........................................................................ 61 Quality of arguments ...................................................................................................... 62 Structural reforms as a means to maintain the welfare state............................................69 National differences in reform agendas and arguments...................................................71 Appendix: Theoretical and methodological approaches......................................................74 Introduction ....................................................................................................................74 Part I: Theoretical approach............................................................................................74 Part II: Methodological approach.................................................................................... 79 References .......................................................................................................................... 88 Literature ........................................................................................................................ 88 Debate statements ........................................................................................................... 91 Preface The research programme, ‘Internationalisation of regional development policies – Needs and demands in the Nordic countries’ was commissioned by the Nordic Council of Ministers in the spring of 2005. The aim of this programme is to undertake research on key issues, where it has been identified that new knowledge is needed, and where such knowledge could be seen to benefit the development and implementation of regional development policy in the Nordic countries. The basis for the research programme is its Nordic character. Research should lead to new knowledge both for the academic world and for the world of policy and practice. Projects should add ‘Nordic value’, i.e. they should produce knowledge of relevance for several regions and countries across Norden. The research should moreover be comparative and collaborative across at least three Nordic countries or self-governed areas. Three themes of high priority for the research programme have been identified; ‘regional governance’, ‘innovation and regional growth’, and ‘demography and labour migration’. In addition to these priorities two additional crosscutting themes were also defined; ‘the enlargement of the EU and the challenges for Nordic regional development policies’ and the broad topic of ‘the three dimensions of sustainable regional development’; i.e. social, economic and environmental sustainability. The research programme has been launched in two rounds. In the first round during the spring of 2005 it was decided to fund five projects. These were reported during 2007. In the second round during the spring of 2007 it was decided that a further five projects should be funded. These will be reported in 2008 and 2009. All project reports are published in this publication series dedicated to this programme. At the end of the programme, a synthesising report will also be produced where the most important findings are discussed. This report is planned to be published in the autumn 2009. Nordregio wishes to thank the Nordic Senior Official Committee for Regional Policy and the Nordic Council of Ministers for providing this unique opportunity to develop new research- based knowledge and for encouraging cooperation and the exchange of ideas between Nordic researchers. Nordregio would furthermore like to thank all of the involved research teams and the programme’s Steering Committee for their continuing contributions to the Nordic discourse on regional development. Ole Damsgaard Margareta Dahlström Director Coordinator of the research programme 8 NORDIC RESEARH PROGRAMME 2005-2008. REPORT 6 Author’s Preface A major reform of public sector responsibilities was implemented in Denmark on 1 January 2007 while the other Nordic countries are now also undergoing administrative reform processes. The main subjects of debate are the number of municipalities and regions, as well as their tasks. The proposed changes are intimately tied to the prevailing national administrative heritage endowment with each country proposing its own solution. The arguments used for and against change are however rather similar. Arguments about service quality, efficiency and equality are used in the context of the debate over larger administrative units, while arguments about democracy and identity are mainly used in relation to smaller units. The aim of this report is to illuminate the arguments used in the public debates that are currently taking place in each of the Nordic countries. The processes themselves are described as background detail to the analysis of the arguments used in favour of, or against, the proposed changes. The descriptions of processes and arguments
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