Participatory Governance: Political and Societal Implications

272 Pages·2002·5.214 MB·English

by  Bernard Gbikpi, Jürgen R. Grote (auth.), Jürgen R. Grote, Bernard Gbikpi (eds.)

Jürgen Grote
Bernard Gbikpi Editors
Participatory
Governance
Political and Societal Implications
Participatory Governance.
Political and Societal Implications
Jiirgen R. Grote/Bernard Gbikpi (eds)
Participatory Governance.
Political and Societal Implications
Springer Fachmedien Wiesbaden GmbH 2002
Gedruckt aufsliurefreiem und alterungsbestandigem Papier.
Die Deutsche Bibliothek - CIP-Einheitsaufnahme
ISBN 978-3-8100-3237-9 ISBN 978-3-663-11003-3 (eBook)
DOI 10.1007/978-3-663-11003-3
© 2002 Springer Fachrnedien Wiesbaden
Ursprünglich erschienen bei Leske + Budrich, Opladen 2002
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Table of Contents
Seite
Tables and Figures .......................................................................................... 9
Contributors ................................................................................................. 11
Preface .......................................................................................................... 13
Introduction
1. From Democratic Govemment to Participatory Govemance
(Bernard Gbikpi and Jiirgen R. Grote) ........................................ 17
1.1. lntroduction ........................................................................................ 17
1.2. Democratic government ..................................................................... 18
1.3. Govemance ......................................................................................... 20
1.4. Participatory govemance .................................................................... 23
1.5. Participatory govemance at work ....................................................... 28
1.6. The territorial dimension .................................................................... 29
1.7. Sectors and policy domains ................................................................ 32
1.8. References .......................................................................................... 34
Governance: Concepts
2. Contextualizing Normative Standards for Legitimate
Govemance beyond the State (Klaus Dieter Wolj) .................. 35
2.1. lntroduction ........................................................................................ 35
2.2. Govemance beyond the state as functional self-regulation ................ 36
2.3. The normative dimensions of govemance beyond the state ............... 38
2.4. Conclusion .......................................................................................... 48
2.5. References .......................................................................................... 49
3. Participation in Govemance Arrangements: 1s there any
Reason to Expect it will Achieve "Sustainable and
1nnovative Policies in a Multilevel Context"?
(Philippe C. Schmitter) ............................................................. 51
3.1. Three principle concepts ., .................................................................. 51
3.2. Three (explicitly) political elements ................................................... 57
3.3. The principles for the chartering ofEGAs ......................... ;. .............. 58
3.4. Four principles for the composition ofEGAs .................................... 62
3.5. Eight principles for the decision-rules ofEGAs ................................. 65
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3.6. Five principles for the substance ofEGAs ......................................... 67
3.7. Concluding with some caveats ........................................................... 68
3.8. References .......................................................................................... 69
4. Govemance: A Social-Political Perspective
(Jan Kooiman) .......................................................................... 71
4.1. Introduction ........................................................................................ 71
4.2. The govemance scene ........................................................................ 72
4.3. An interactive govemance perspective ............................................... 75
4.4. Elements of goveming ........................................................................ 80
4.5. Modes ofgovemance ......................................................................... 82
4.6. Orders of goveming and govemance ................................................. 86
4.7. References .......................................................................................... 94
5. Civic Perspectives on a Democratic Transformation of
the EU (Hubert Heinelt) ........................................................... 97
5.1. Introduction ........................................................................................ 97
5.2. The civic sector and regime composition ofpolitical systems ........... 99
5.3. The general structure ofthe EU regime composition and civic
democratization ................................................................................ 10 5
5.4. Perspectives on the deve10pment of a politic al order of the EU ....... 112
5.5. References ........................................................................................ 118
Governance: Institutions
6. The European Commission: Promoting EU Govemance
(Brigid Laffan) ........................................................................ 121
6.1. Introduction ...................................................................................... 121
6.2. The Commission as an institution: The dominance ofnetworks ...... 123
6.3. Generating policy and legislative proposals ..................................... 124
6.4. Implementing and managing policies ............................................... 131
6.5. Reform .............................................................................................. 133
6.6. The Commission and participatory govemance ............................... 135
6.7. Conclusion ........................................................................................ 136
6.8. References ........................................................................................ 137
7. The Effects of European Integration on National Forms of
Govemance: Reconstructing Practices and
Reconceptualizing Democracy (Vivian A. Schmidt) .............. 141
7.1. Introduction ...................................................................................... 141
7.2. EU govemance and its differential impact on Member-States ......... 143
7.3. Institutional change, ideas, and discourse ........................................ 148
7.4. France ............................................................................................... 151
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7.5. Britain ............................................................................................... 159
7.6. Germany ........................................................................................... 166
7.7. Conclusion ........................................................................................ 172
7.8. References ........................................................................................ 173
8. Regions in Multilevel Govemance Arrangements:
Leadership versus Partnership (Michele Knodt) .................... 177
8.1. Introduction ...................................................................................... 177
8.2. The EU as an interactive and comrnunicative system of
multilevel govemance ...................................................................... 178
8.3. The impact of European core concepts and institutional change ..... 182
8.4. Conceptional presence and heterogeneous structure ........................ 183
8.5. Conceptional spill-over and complementary structure ..................... 186
8.6. Regional capacity to interact ............................................................ 189
8.7. Managing European differences through leadership and
participation ...................................................................................... 192
8.8. References ........................................................................................ 194
Governance: Sectors and Domains
9. Democratising Expertise (Claudia Radaelli) ............................ 197
9.1. Introduction ...................................................................................... 197
9.2. Experts or expertise? ........................................................................ 200
9.3. What is the nub ofthe problem? ....................................................... 203
9.4. The trade-offs of the democratisation of expertise ........................... 204
9.5. What does empirical research show? ................................................ 205
9.6. The real issue: The institutional design ............................................ 207
9.7. Conclusion ........................................................................................ 210
9.8. References ........................................................................................ 211
10. Environmental Govemance: From Innovation to
Powerlessness (Jacques Theys) ................................................... 213
10.1. Introduction ...................................................................................... 213
10.2. Govemance, govemability govemmentality? .............................. 215
Of
10.3. Democratic govemance as a solution for new environmental
challenges ......................................................................................... 222
10.4. The pessimism ofungovemability ................................................... 229
10.5. Towards a cognitive democracy ....................................................... 237
10.6. References ........................................................................................ 243
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11. Private Actors in Political Govemance: Regulating the
Information and Communication Sectors
(Volker Schneider) ........................................................................ 245
11.1. Introduction ...................................................................................... 245
11.2. Govemance: From systemic regu1ation to institutional
cybemetics ........................................................................................ 245
11.3. Private and public contributions to political govemance ................. 249
11.4. Goveming the information and communication sectors ................... 252
11.5. Intemal viability and economic regulation ....................................... 254
11.6. Control oftechnical risks and negative extemalities ........................ 258
11.7. Private participation and democratic principles ............................... 260
11.8. References ........................................................................................ 263
Conclusion
12. Participation and Meta-Govemance:
The White Paper of the EU Commission
(Jiirgen R. Grote and Bernard Gbikpi) ...................................... 265
12.1. Introduction ...................................................................................... 265
12.2. Designing the White Paper: On Virtues and Risks of
Participatory Policy-Making ............................................................ 267
12.3. Govemance, Meta-Govemance, and Govemance Failure ................ 271
12.4. References ........................................................................................ 274
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List of Tables and Figures
Seite
Table 9.1: Action lines proposed by the working group of the
Commission on "Democratising Expertise and
Establishing Scientific Reference Systems" .......................... 200
Table 10.1: Decision making in a stabilized wor1d .................................. 217
Table 10.2: Decision making in a controversial world ............................. 219
Table 10.3: The four dimensions of environrnental govemance .............. 224
Table 10.4: Ten contradictions of environrnental govemance ................. 231
Table 10.5: For critic al approaches to govemance .................................. 236
Figure 2.1. The "Cube of Democracy" beyond the State .......................... 47
Figure 4.1. Interactive govemance - scheme of analysis .......................... 76
Figure 4.2. The realm of social-political interactions ................................ 79
Figure 5.1. Sectoral composition of the politic al system ......................... 10 1
Figure 5.2. The triangle of effectiveness, efficiency and legitimicy ....... 112
Figure 8.1. Does joint problem-solving represent a useful strategy? ...... 185
Figure 10.1. The "regalian state" .............................................................. 225
Figure 10.2. Water management by the user's community ....................... 226
Figure 11.1. Evolution of the perspectives of socio-economic order ........ 247
Figure 11.2. Evolution of govemance in telecommunication and
information technology ......................................................... 255
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Contributors
Berrnard Gbipki is Senior Research Fellow at the European University
Institute in Florence where he is engaged in a project on "Democracy
Promotion in Eastern Europe, the Middle East and Africa". Among his recent
publications are "Contribution a une theorie de la legitimation politique des
ordres economiques et sociaux modernes" in: Cultures et Conf1its, 1999, No.
33-34, 173-233.
Jiirgen R. Grote is Senior Research Fellow at Konstanz University (Depart
ment of Politics and Management). Re has previously held positions at the
EUl and at the MZES Mannheim. Re is current1y coordinating a project on
"Organizational Change in National Business Associations" which is concer
ned with problems of Europeanization and globalization. Among his pub
lications are (with 1. Greenwood and K. Ronit) "Organized Interests and the
European Community" (London, Thousand Oaks, New Delhi: Sage, 1992).
Hubert Heinelt is Professor of Political Science at Darmstadt University.
Apart from coordinating the project of which this volume is a product, he is
current1y working on different EU policies (like environment and cohesion
policy). Among his recent publications are "European Union Environment
Policy and New Forms of Governance" (co-editor with T. Malek, R. Smith
and A. Toeller) Aldershot: Ashgate 2001, and "Policy Networks and
European Structural Funds. A Comparison between Member States" (co
editor with R. Smith) Aldershot: Avebury 1996.
Michele Knodt is Assistant Professor at the Faculty for Social Sciences of the
University of Mannheim, and Director of the project "Governance in an
Expanded Multi-level System" at the Mannheim Centre for European Social
Research (MZES). She has recent1y published: "External Representation of
German Uinder Interests", in: Eberwein, Wolf-DieterlKaiser, Karl (eds.)
"Germany's New Foreign Policy. Decision-Making in an Interdependent
World" Basingstoke: Palgrave 2001,173-188.
Jan Kooiman is Professor of Political Science at the Rotterdam School of
Management, Erasmus University. Ris most recent publications include
"Modem Governance: New Govemment-Society Interactions" (editor),
London, Thousand Oaks, New Delhi: Sage 1993; "Creative Governance"
(editor), Aldershot: Ashgate 1999.
Brigid Laffan is Jean Monnet Professor of European Politics, and Director of
the Dublin European Institute at the University College Dublin. Among her
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