The Role of Local Councillors in a Multi-Level Context: Insights from Norwegian Urban Transport Networks

Local councilors are elected to represent the citizens and transform their preferences into local policies. However, the increasing complexity of the challenges in society require cooperation of various actors. Therefore, political decisions are increasingly a result of negotiations through networks of actors. This article illuminates the role of local councilors in urban transport networks, based on a comprehensive survey among local councilors in three urban areas in Norway. We ask: How do local councilors themselves perceive the democratic anchorage of governance networks in a multi-level context? The theoretical framework for this paper will be based on the literature on the democratic anchorage of networks, meta-governance and multi-level governance. There is limited scientific evidence on the relationship between networks and representative democracy (Aars and Fimreite 2005; Klijn and Skelcher 2007; Klijn 2008; Klijn and Edelenbos 2012; Papadopoulos 2013) and a need for more comparative and quantitative research on the relationship between networks and traditional institutions (Klijn 2008). Capano et al. (2015) call for more empirical research into current governance arrangements, to examine whether networks indicate a break from traditional institutions or if it is merely a new tool for governments. Metagovernance may equip politicians to exercise democratic governance (Sørensen 2006). Research shows that local politicians do not lack governance tools in network-oriented urban planning, rather they do not fully utilize the potential of the instruments available (Hanssen 2011; Aarsæther et al. 2009). In Norway, it has become common policy to establish multi-level networks between national, regional and local authorities in urban areas, based on toll ring schemes. These governance networks are stable with regular meetings and control large amounts of funds. The capacity of the network may increase the probability that the networks play a central – and not merely symbolical - role in policy formulation and implementation. This makes the case particularly interesting: We can assume that high-capacity networks are more likely to become alternative arenas where policy formulation and decision-making take place, which may change the role of local councilors. In March 2018 we will distribute a survey among local councilors in three municipalities and associated counties, which are parts of the three largest urban areas in Norway: Oslo/Akershus, Bergen/Hordaland, Trondheim/Sør-Trøndelag. The questionnaire contains questions regarding democratic anchorage of the networks as well as on the multi-level dimension and networks as a tool to achieve results and solutions on complex problems. The research will provide new insights into the democratic anchorage of three well established high-capacity networks.