Patterns of Asymmetrical Divisions of Functions at Local Level in Europe

This paper explores the occurrence, rationales, solutions, persistence and implications of ex-isting asymmetrical divisions of functions at municipal level in Europe. Although the general norm in European local government is one of symmetry, i.e. that all municipalities in a coun-try have the same tasks and functions, there are important exceptions to this principle, and as asymmetries are the deviation to that norm, they need to be explained. Local asymmetries are also important to explore as a possible reform alternative to mergers, inter-municipal co-operation and comprehensive transfers of functions of responsibilities. Some local asymmetries have deep historical roots whereas others have been introduced or are currently considered as part of a reform strategy. In some countries, asymmetries may only concern a small number of municipalities, but in other, the entire local government sys-tem may be characterized by a principle of asymmetry, for example by giving the municipal-ities different functions according to their size or based on a general urban-rural division. Asymmetries may involve multi-level governance arrangements. These include solutions where a higher level of government or a neighbouring municipality takes over a task from a smaller municipality or when a municipality carries out all the functions of an upper level of government. The paper draws on previous studies and evaluations of asymmetrical arrangement in differ-ent European countries but organizes the findings according to a common framework of analysis. It adopts an institutional approach as a theoretical means of understanding the role and functions of local asymmetries. Not only is this division in itself a formal institution, but the understanding of why asymmetries have emerged and may have persisted will also be captured through hypotheses generated from institutional theory. The analysis is structured by a framework that builds on five dimensions: • Occurrence: How common are asymmetrical divisions of functions at local level in dif-ferent European countries and does this follow any particular pattern? • Rationale: What is the rationale of the asymmetrical solution? Why has it been intro-duced and retained? What problems are they supposed to address? • Institutional solutions: What type of institutional solutions have been selected to ad-dress these problems and how comprehensive are they? Are they fixed or negotiable? • Persistence: Are asymmetries rooted in history and persistent or have they been intro-duced recently as a reform? And have the reform emerged through innovation or mimicking? • Implications: What are the implications of asymmetrical solutions, in particular the consequences of the unevenness that will exist, and that may have effects on democ-racy and accountability and on the effectiveness of service delivery? The paper provides the first general overview of these matters. Asymmetrical divisions of functions at regional level exist in about half of the 81 countries covered by the Regional Authority Index and have been more thoroughly explored. However, as no research has been carried out on local asymmetries, we know very little about how common it is, how it has been used and with what results.