Explaining the reorganization of political space in local governance reform: would critical realism help?

ABSTRACT When explaining the causes of structural variations in local governance reform, regional studies scholars face a trilemma: how to avoid voluntarism that over-inflates individuals’ power to ‘heroically’ reorganize local governance regimes; how to avoid determinism that denies the prowess of local actors in the face of institutional constraints; and how to avoid constructivism that denies the separate existence of both individual actions and local institutions. The question they must answer is: if individuals are embedded in institutions that define their interests and shape their cognitions, how can they ever be able to change institutions? Critical realism suggests a suitable answer to this question by seeing institutional dynamics as consisting of structures, institutions, and actions, each with a distinct existence but nevertheless irreducible to each other. The practical value of this ontology – which avoids voluntarism, determinism and constructivism – is illustrated by an English devolution case study.