“Top-down” local government mergers: Political and institutional factors facilitating radical amalgamation reforms

Why are some countries able to go ahead with comprehensive top-down local government amalgamation reforms, despite the many challenges such a reform entails? So far, we have limited theoretical and empirical understanding of how central governments manage to adopt such reforms. Drawing on different theoretical frameworks around public policy as well as research into territorial reforms, this article presents key political and institutional factors that are likely to facilitate top-down municipal mergers and examines whether these theoretical propositions help to explain the adoption of comprehensive top-down municipal amalgamation in four cases: Denmark, Estonia, Ireland, and Portugal. Key political and institutional factors identified in existing frameworks provide a useful starting point for understanding and explaining top-down comprehensive municipal amalgamation reforms, such as the role played by the breaking up of existing policy monopolies and emergence of new venues for discussing the reform. At the same time, the cases also reveal some important nuances that at times run counter to theoretical expectations. Our cases also reveal further factors, including the “bundling” of amalgamation reforms with other wider initiatives, and the potential effect of “distracting events” that should be taken into account in the further development of theoretical frameworks concerning top-down amalgamations.