Challenges of Intergovernmental Relations in Non-Federal Countries: Reflections on the Management of the COVID-19 Crisis in the Netherlands

Abstract

Intergovernmental relations (IGR) have emerged as a significant research topic in all sorts of political systems, with an increasing body of literature focusing on non-federal countries. Moving research beyond the more known federations has the advantages of emphasising the “in-flux” nature of IGR as well as tackling concerns regarding the adequate balance between effectiveness and democracy in multilevel arrangements. This paper addresses the challenges that IGR pose to democratic legitimacy and accountability, by analysing the case of the Netherlands’ management of the COVID-19 pandemic. It focuses on the functioning of the safety regions (SR), particularly the strengthening of the municipal (or regional) executive, at the expense of representative institutions and particularly the local councils. In addition, the lack of accountability mechanisms, and the prominent role of the so-called Safety Council, which could have a significant impact on regionalisation and IGR in the Netherlands, are also discussed. While some reports have called for a stronger and more formalised position of the Safety Council, without an adequate and clear legal framework, this institution for organisational coordination can lead to many challenges from the point of view of democratic multilevel constitutionalism. Yet, on the other hand, the formalisation of existing governance practices might impact the need for rapid responses in crisis management. Overall, two contributions might be learned from the Dutch experience. First, the change in balance within subnational institutions, with the executives now playing a larger and stronger role, and the city councils being less involved in determining policies and with limited real accountability practices. Second, the transfer of powers from local municipalities to safety regions, and from regions to the Safety Council, through the extensive and prolonged application of the SR, thus altering the normal allocation of powers and competences, and the traditional channels for intergovernmental relations.