Regionalisation from the bottom up? : A study of municipalities’ capacity for regional coordination of upper secondary education through inter-municipal cooperation

With potential of increased efficiency and a broader range of services, inter-municipal cooperation is often presented as a universal solution to public welfare challenges. Today, all Swedish municipalities are involved in inter-municipal cooperation in various policy areas. However, little is known about the municipalities’ capacity to coordinate their cooperation arrangements in the complex network of institutions and overlapping territories that characterise the regional level of governance. Building on the institutional collective action framework and the concept of governance capacity, this study examines how the municipalities’ capacity for regional coordination of upper secondary education in the city region of Örebro County varies depending on the institutional structures, the opportunities for cooperation and the social capital that embed the inter-municipal arrangements. The empirical study is based on a mixed method approach; where a qualitative content analysis of public documents is combined with interviews of representatives from different inter-municipal arrangements in Örebro County. By analysing how inter-municipal cooperation on upper secondary education has emerged and developed in Örebro County, this study shows how the municipalities have established institutions at two different levels. In Örebro County, regional networks and contracts operate in parallel with local agreements and municipal associations with delegated authority – only including a few municipalities in the city region. Several of the cooperation arrangements also include actors from the private sector and different levels of governance. The emergence of these inter-municipal cooperation arrangements can be interpreted as an institutional outcome of the municipalities' intrinsic motives to ensure a wide range of education to their local citizens as well as the need to secure the supply of skills and workforce in private and public sector. But it can also be interpreted as a strategy for the smaller municipalities to ensure their influence and governance capacity in the city region – which has a built- in power asymmetry linked to the municipalities’ heterogeneity. The emergence of the cooperation arrangements also illustrates a path dependent development, where the municipalities’ historical collaboration tradition determines which institutions that emerge and to which degree social capital can be established. Particularly noteworthy in the emergence of the inter-municipal cooperation in Örebro County is the presence of government, which manifests itself through conditional financing of the inter-municipal cooperation arrangements. Thus, within one and the same geographical city region, and within one and the same policy area, there is an overlap of different inter-municipal collaborative arrangements and functional regions, which has emerged in a symbiosis of both horizontal and vertical relations. As a result, the regionalisation that the municipalities create “bottom up”, through voluntary cooperation, work in parallel with the regionalisation that is created “top down”, through formal regional institutions