Strategic coupling of administrative rationality and cultural imaginaries in municipal amalgamations

Abstract

Municipal amalgamations are widely applied interventions for enhancing policy delivery in a political-economic context of devolution, austerity, and decentralization of welfare states. This paper studies how public stakeholders in the Netherlands walked the tightrope between ‘hard’ political-administrative logic and ‘soft’ cultural-historical discourse to justify, institutionalize, and legitimize municipal amalgamations. It uses a theoretical approach that combines literature on the rescaling of state governance and cultural political economy. Based on a discourse analysis of amalgamation reports, the paper traces the constructed political-economic and cultural imaginaries of the 26 municipal amalgamations that took place in the country between 2018 and 2023. Imaginaries underpinning the Dutch decentralization discourse were purely political-administrative in content, both regarding the necessity to act and the solutions (i.e., municipal amalgamations). Alternative, relational forms of spatial decision-making were covered by an imaginary of inefficiency and limited democratic control. Cultural imaginaries were locally mobilized to retain the top-down political-administrative logic, and to allow the municipalities to position themselves in between the citizens and the state. The amalgamation reports reflected a sometimes-difficult discursive negotiation between administrative efficiency and culture, future and past, vigour and softness, and external and internal visibility of the new municipalities. The paper concludes that the spaces of territorially bounded ways of policymaking, including municipal mergers, are intrinsically relational, jointly material-discursive/symbolic, and fluid (i.e., process-based). The cultural political economy framework provides a useful interpretative framework for debates on politics of scale, state rescaling, and (re)territorialization.