Networks, power, and scale: constructing localmacroregional. Georg Sootla, Tallinn Univeristy Peeter Selg, Tallinn University, Tampere University

Transcription

1 Networks, power, and scale: constructing localmacroregional networks Georg Sootla, Tallinn Univeristy Peeter Selg, Tallinn University, Tampere University

2 Introduction Development of the concept of macroregions towards network approach (Nordregio 2008, Zonneveld, Vaterhout 2010) EU BSRS as a political project and as innovation in institutional policy: how to fit different interpretations October, conference in Tallinn: formal institutional barriers dominate Case: Argumentation against our flagship project.

3 Structure of the report I Understanding networks: a conceptual basis II Constructing and managing networks III Case study: multiple agency networks of local safety policy

4 I Debating networks Börzel 1998, Kickert et.al (a) developments in political science: from pluralism to policy community. (b) developments in organisational theory: from machine bureaucracy to interorganisational cooperation. (c) developments in policy sciences: from rational actor stages to interactive policy formation/making.

5 I Debating networks Sørensen and Torfing (2007) (a)interdependence tradition (Dutch and UK school) (b)governability traditional (Max-Plank school) (c)integrative tradition (March and Olsen) (d)governmentality/disciplinary power networks (Foucault, Dean, Rose)

6 I Debating networks Substantialist vs relational approach: (Foucault, Bourdieu, Elias, Emirbayer, Somers, Massey, Allen, Jessop etc) a) Substantialism: Interaction process among actors with pregiven identities (preferences). b) Relationalism: Transaction process among actors whose identities are constituted through relation.

7 I Relational concept of power not viewed as compulsion or coercion, but as an interdependent synergy that activates new subjectivities (roles, capacities, goals). Governmentality as conduct of conduct : domination that operates through empowerment and mobilization. Power as a two way street. (facilitation/domination) Conflict as a mutual conditioning of the (network) action

8 I Relational concept of learning and communication 1) Knowledge is created through mutual (interdependent) transaction/communication 2) No independent source of knowledge. Created through collective learning. 3) Transmitting and receiving knowledge is a constitutive relation. 4) Knowledge is a form of facilitation: spreading knowledge facilitates both the receiver and the transmitter of knowldege.

9 I Relational concept of change and identity Relational approach treats things as processes Direction of change is unclear, through bifurcations Core task of organizing is to structure the discourse (on adapting to change) Change (reforms) cannot be intentional, change is caused by attractors as meaning systems Identity as reciprocal reflection of Self and Other, transactive identity

10 I Relational (network) approach to scale Scale as vertical hierarchy vs. as interdependent division of labour Loss of territorial or flat definition of scale (example of clusters vs city regions) Construction of multiple scales The concept of scalar place (i.e. local autonomy) Theorising socio-spatial relations: Jessop, Brenner, Jones

11 I Relational (network) approach to local autonomy Autonomy (De Filippis, Murdoch) (a)as immunity from domination: protective autonomy (b)as capacity to act without constraints (c)as capacity to form the role position in networks (interdependency)

12 Local autonomy from relational point of view Local autonomy as multidimensional process Asserting autonomy in networks (interdependencies) through chain of equivalents, i.e. role position as the network structure Examples: LG association, PPP patterns, EU lobby.

13 II Constructing and managing networks Network as a paradigm (i. e. a relational concept of bureaucracy) Examples in local governance - Mergers with institutional effects - New regionalism - NPM provider/purchaser split - Urban regimes - Integrative approach in central local relations - Multi level governance

14 II Adapting Minzberg and RW Scott: network as the type of organizing Standardisation of internal processes: bureaucracy Standardisation of outputs: professional organisations Strategic adaptation to environments (divisional organizations) Strategic re-programming of action patterns (learning organisations)

15 II Types of organizing - real organisation as composed of sections/dimensions based on different organizing principles - strength and weakness of all types, networks are the most risky/flexible pattern of organizing - most valuable skill how to combine them as networks (as mutually reinforcing parts)

16 II Conditions when network organizations are effective Complexity of (controversy in) task environment Controversial mission of actors of collective action Ambiguity of ends/means Rules and structures as negotiated orders Non-linear changes Functional vs. holistic approach: domination in the space

17 II Logic of emergence of networks 1 NW cannot be created, they can emerge (a) deconstruction of hierarchies (b) evolution of zero-sum competition into positive sum partnership. (c ) evolution of instrumental relations into institutionalized identities

18 II Logic of emergence of networks 2 Cultural-historical premises of politico-administrative cultures - the presence of institutional balances - consensual vs. majoritarian (or corporatist) cultures - values of horizontal individualism and collectivism

19 II The network structure Networks topography vs. topology Macro-region as a level of governance vs. networks in multilevel macro space Flat network vs. networks as patterns of nodal points in space The example of networked university as complex network

20 II Steering/managing networks The role of metagovernance: metagovenrnor as a warranty, as a mediator, as a constructor of meanings, as hands off steering Domination as facilitative and integrative activity Multiplicity of dominant subject positions

21 III Case study Multiple Agency Partnership (MAP) in local safety policy Traditional policing as the policy of exclusion vs. Local Safety Policy as policy of social inclusion, active citizenship Fear of crime and violence or/and issue of quality of life and social integration (cross border and networked crime)

22 Multiple Agency Partnership as a network Local safety and global crime as wicked and holistic problem Controversial mission of network actors, adaptation of mission Institutional density and learning for effective facilitative actions Combination of different power techniques: deterrance and empowerment Issue of formation and domination in discursive space

23 Obstacles to reconciling MAP and conventional bureaucracy Functional organisation and fragmentation of place policy Creating discursive/communicative context for partnership at central/policy formation level Different authority structure of sectoral silos (incompatibility of local status of partners) Misfit of civil society institutions and functional organisations, volunteers as a source of free labour

24 In conclusion Importance of network analysis in institutional innovation Usefulness of less deductive paradigm in organizing Macro regional networks as primarily meaning patterns Instrumental vs. institutional effects of cross border cooperation for the regional competitiveness

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