Complexity in local government change

Abstract

This article discusses empirical research findings indicating that complexity is a dominant characteristic in local government change and addresses that the current complexity sets limits to rational reform processes and gives way to political leadership. During the recent decade, intermunicipal co-operation has emerged as a major issue in local governance in Finland. Despite the fact that the need for intense co-operation is acknowledged in most surveys, practical steps are often difficult to take due to complexity of the interorganizational action. Actors come upon complex situations involving many issues; situations where the issues are continuously changing and complicatedly interdependent. Circumstances are further blurred by the fact that actors often hide their preferences. In the changing local governance, complexity, paradoxes and uncertainty decrease the prospective of managerial and expert knowledge, because rational calculations do not give definitive support for decision making. From this perspective, we have reached the limits of rational, clear-cut reforming. More than before, the implementation of change depends on the emergence of political leaders willing and able to take responsibility for reforms.