Integrating Swedish water resource management: a multi-level governance trilemma

Abstract

This paper analyses proposals for new multi-level governance of Swedish water resources to implement the EU Water Framework Directive. The question is, do they satisfy the criteria for ecologically rational and democratically legitimate governance? The core of the analysis concerns an administrative 'trilemma' encountered in designing ecologically effective and democratically acceptable multi-level governance. This trilemma is characterised by tensions between effectiveness, participation and legitimacy, all core values of 'good governance'. The Swedish proposal constitutes an effort to achieve cost-effective implementation of the EU Directive through an ecosystem-based multi-level organisation. It also seeks to bring about democratically legitimate governance through stakeholder networks and negotiations at the sub-catchment level, and governance 'partnerships' among local governments and organised interests. In particular, the assessment addresses issues of integrating such 'super-local' and local alternatives within the larger web of multi-level water resource governance. Although intended to escape the 'trilemma', the proposed combination of formal government and informal governance is found wanting in terms of effectiveness as well as participation and legitimacy.

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