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doi: 10.1111/j.1478-9302.2011.00239.x
Networks are central to both the practice and understanding of contemporary governance. But there is a tendency
to conflate and confuse different concepts. Concepts of ‘policy network’ (PN) and ‘governance network’ (GN) are
often used interchangeably, with an assumption that the latter has evolved from the former. Such indiscriminate
borrowing fails to recognise the different antecedents, and distinctive analytical offer, of specific network theories.
The article develops a systematic distinction between PN and GN theories, enabling those engaging with networks
to select from, and even combine, alternative perspectives as they confront a new wave of change in policy making
and governance. The more sceptical account provided by PN theory provides a valuable counterbalance to the
‘optimistic’ character of the GN literature, which tends to underestimate the continued hold of (albeit multi-sector)
elites on policy making, and overstate the extent to which networks represent a new ‘stage’ in the evolution of
governance.
Historical Interpretation
Drawing on different traditions such as the ‘policy community’, ‘iron triangles’ and
‘issue networks’ approaches developed in the US and the UK from the 1960s, PN
reacts against the idea of a monolithic state that controls the process of policy making
alone. On the contrary, it claims that policy making takes place in policy domain-
specific subsystems consisting of a variable number of actors dealing with specific
policy issues. From this viewpoint, networks are not anything new, but a long-standing
feature of policy making. Networks are often represented as a metaphor to describe
how policies are really made. As Silke Adam and Hanspeter Kriesi (2007, p. 146) put it,
policy making is intrinsically ‘a process involving a diversity of actors who are mutually
interdependent’.
The GN literature, on the contrary, tends to present networks as an emerging policy
paradigm ‘framed within a wider set of changes in economy and society that have been
variously entitled as post-modernity, post-industrialism or post-fordism’ (Stoker, 2004, p.
9). It implies that such socio-economic transformations have paved the way for a ‘crisis’
in traditional bureaucratic government and the emergence of new ways of regulating
social conflict. As Eva Sørensen and Jacob Torfing (2008, p. 2) explain:
In the last decade, the heated ideological debate about whether to base social
governance on either state or market has been challenged by new developments
in societal governance. Hence, in order to compensate for the limits and failures
of both state regulation and market regulation new forms of negotiated
governance through the formation of public–private partnerships, strategic alli-
ances, dialogue groups, consultative committees and inter-organizational net-
works have mushroomed.
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GN, in this sense, is represented as part of a historical sequence, in which network forms
of governance come to replace, or at least challenge, both the hierarchical forms of
governance associated with social democratic welfare states and the market forms of
neo-liberal ‘new public management’. GN is influenced by sociological communitarian-
ism, expressed by Amitai Etzioni (1993) in the US and Anthony Giddens (1998) in the
UK, together with a neo-Keynesian perspective on how to deal with the costs of a global
market economy (Bevir and Gains, 2009, pp. 14–5). The proliferation of officially spon-
sored partnerships since the end of the 1990s is considered to be a reflection of the
increasing influence of the network paradigm (Lowndes and Skelcher, 1998; Newman,
2001; Sullivan and Skelcher, 2002).
Contextual Determinants
GN seeks to account for the growing difficulties of traditional government and the
emergence of networks as an alternative governance paradigm. Commentators have
pointed out a number of factors, more or less directly linked to the socio-economic shifts
mentioned above:
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300 ISMAEL BLANCO, VIVIEN LOWNDES AND LAWRENCE PRATCHETT
• the growing complexity, dynamism and diversity of society (Kooiman, 1993) and the
resulting expansion of ‘wicked problems’ (Bevir, 2010; Christensen, 1999; Clarke and
Stewart, 1997; Rhodes, 1997);
• the search for more integration within an increasingly fragmented organisational
landscape stemming from the public sector reforms of the 1980s (Rhodes, 1997;
2007);
• the impact of continued constraint on public resources since the mid-1970s and the
resulting need to search out new sources of finance – such as public–private partner-
ships (Lowndes and Skelcher, 1998; Mackintosh, 1992);
• changes in citizens’ political attitudes entailing a growing disenchantment with rep-
resentative forms of democracy and new demands for more voice in decision-making
processes (Dalton, 2005).
PN, on the other hand, is not concerned with past–present comparisons or, at least, tends
to be silent about the general impacts on modes of governance of phenomena such as
‘post-Fordism’, ‘post-industrialism’ or ‘postmodernity’. Rather than focusing on temporal
shifts, there is a strong comparative element, focusing on cross-national and cross-sectoral
variation (Adam and Kriesi, 2007, pp. 136–43). Contrasting patterns of power distribution
and types of interaction within policy subsystems are linked by PN theorists to both the
formal national institutional structure and the informal practices and procedures that
characterise different national contexts. At the same time, the PN literature stresses that,
even in the same country, networks might differ significantly from one policy sector to
another. As a consequence, domain-specific factors – such as the visibility or salience of
policy issues, the expectations they raise among different groups or the traceability of
policy effects – can have a significant influence on network configuration and dynamics.
and hierarchies as distinct modes of governance associated with particular transaction costs
on actors (Williamson, 1985), and to subsequent contributions that have added the
network category to Williamson’s formulation (Lowndes and Skelcher, 1998, p. 318;
Powell, 1991). This analytical focus has entailed a tendency to treat networks ‘as undif-
ferentiated forms, as if they all could be characterised in the same general way’ (Provan
and Kenis, 2008, p. 233).
Network Focus
The substantive and spatial focus of PN and GN approaches differs significantly. PN tends
to focus on traditional policy fields at the national level, like agricultural, industrial or
economic policy, which tend to correspond to the departmental boundaries of national
governments. By representing networks as policy subsystems linked to specific policy
domains, the literature has less to say about cross-sectoral policy-making relationships that
cut across traditional departmental boundaries (Peters, 1998, p. 23). However, it is recog-
nised that increasingly internationalised policy environments ‘may influence policy net-
works at the national level by redistributing resources, opening up new access points, and
creating new venues that allow for reopening matters previously settled at the national
level’ (Adam and Kriesi, 2007, p. 137). On this basis, PN has stressed the increasing
importance of the European Union both in shaping domestic policy networks and
through the proliferation of new transnational policy networks (Kaiser, 2009; Kriesi et al.,
2006).
GN is intrinsically oriented towards the analysis of innovation in modes of governance,
which leads it to concentrate on emergent policy areas such as ‘social inclusion’, ‘envi-
ronmental sustainability’ or ‘neighbourhood regeneration’. These are defined as ‘wicked
issues’ (Bevir, 2010; Clarke and Stewart, 1997) that can only be tackled by bringing
together the resources of a range of different providers and interest groups. Or, in Rhodes’
terms, these are ‘messy problems’ that demand the type of ‘messy solutions’ that only GN
can provide (Rhodes, 1997, p. xv). GN focuses upon networks that are based upon
collaborative relationships between actors from different sectors – the public, private and
‘Third Sector’ (Perri 6 et al., 2002). Such networks tend to revolve around complex policy
problems in a specific territory, usually a neighbourhood, a locality or a region. In other
terms, while PN usually focuses on networks having a functional or policy anchor, GN
tends to concentrate on network arrangements with a spatial or a territorial base.
Nature of Exchanges
Although PN recognises the existence of different types of network, Marsh and Rhodes’
definition of policy networks as ‘a limited number of participants, frequent interaction,
continuity, value consensus, resource dependence, positive-sum power games, and regu-
lation of members’ (Marsh and Rhodes, 1992b, p. 23) is widely accepted. This definition
explicitly stresses the interdependence between actors and assumes a degree of instru-
mentality in their behaviour: because no actor has a monopoly of resources, actors enter
into mutually beneficial relationships in order to achieve their policy goals (Rhodes,
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302 ISMAEL BLANCO, VIVIEN LOWNDES AND LAWRENCE PRATCHETT
1985). At the same time, trust and reciprocity act as important lubricants of collective
action. As explained by Rhodes, if bureaucracies are characterised by rules and authority,
and markets by prices and competition, then trust and diplomacy are ‘the glue which
holds the complex set of relationships together’ (Rhodes, 2007, p. 1246). PN highlights,
in effect, the role of ‘bonding social capital’, which is ‘expressed through relatively closed
social networks and shared social identities’ (Lowndes and Pratchett, 2008, p. 680).
In contrast to the conception of networks as a metaphor to uncover hidden policy-
making relationships, GN tends to celebrate networks as innovative, inclusive and efficient
institutional arrangements. The link between networks and social capital theory is taken
a step further. The active promotion of networks and partnerships can be seen as ‘an
explicit attempt to cash in on the social capital that already exists in policy domains’
(Lowndes and Pratchett, 2008, p. 683). Bringing together actors from different sectors
with a view to pooling diverse resources and perspectives, the emphasis is on the role of
‘bridging social capital’ as a resource for innovation and flexibility. Governance networks
may also create social capital as new channels of cooperation over shared objectives
develop.
Institutionalisation
For PN, the process of network formation depends on a set of factors, including: the
actors’ perception that certain goals can be more easily reached through exchange rather
than acting alone; the similarity of actors’ preferences; and the extent to which the
institutional context favours such relations (König and Bräuninger, 1998). In PNs, patterns
of interaction between actors tend to be very informal. PNs are usually identified through
researching contacts reported by actors themselves, since they are not usually associated
with any formal institutional arrangement. Despite their informality, ties between actors
can be strong and long lasting, particularly in policy communities.The PN literature tends
to treat networks as a structure or independent variable (Marsh, 1998b).
The GN literature invites us to adopt a very different perspective (see, for instance,
Kickert et al., 1997; Koppenjan and Klijn, 2004). Governance networks are understood as
a phenomenon that can be managed, rather than as a structural underpinning for policy
making. More specifically, ‘network management’ is identified as an explicit strategy in
‘situations of interdependencies’. Network management is ‘aimed at coordinating strate-
gies of actors with different goals and preferences with regard to a certain problem or
policy measure within an existing network of inter-organizational relations’ (Kickert et al.,
1997, p. 10). Sørensen and Torfing prefer to adapt the concept of ‘metagovernance’ (Jessop,
2002; Kooiman, 2003), which they define as a ‘reflexive and response process through
which a range of legitimate and resourceful actors aim to combine, facilitate, shape and
direct particular forms of governance in accordance with specific rules, procedures and
standards embodying the hegemonic conception of what constitutes “Good Gover-
nance” ’ (Sørensen and Torfing, 2009, p. 245).
The conception of networks as a mode of governance that can be designed and promoted
to maximise efficiency and (a form of) democracy is typical of the GN approach. From
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POLICY NETWORKS AND GOVERNANCE NETWORKS 303
this perspective, networks are the result of institutional incentives specially designed to
promote collaborative activity – as happens, for instance, when the funding of a pro-
gramme is conditional upon the existence of a partnership (as has become common in
policy areas like urban regeneration, crime prevention, environmental management or
childcare). In this regard, governance networks usually adopt a formal institutional shape,
being more malleable than the kind of networks the PN literature has chosen to focus
upon.
Democratic Impacts
The PN and the GN approaches take different normative stances regarding the demo-
cratic implications of networks. Colin Hay (1998), for instance, muses over whether policy
networks are best considered as a harmonious alliance between plural actors to solve
collective problems, or rather as some sort of ‘Cosa Nostra’ reflecting the concentration of
power by a few (elite) actors. Hay identifies both stances as present within the literature.
The debate on network ‘performance’ has revolved around two main axes, relating to
efficiency and democratic quality. On efficiency, in spite of the fact that many authors
subscribe to the idea that ‘messy problems’ require ‘messy solutions’, others also remind us
that there is the possibility of (network) ‘governance failure’ (Jessop, 2003; Stoker, 1998).
As to the latter, literature debating the presence or absence (and prospects for) the
‘democratic anchorage’ of governance networks has proliferated in recent years (Bache
and Chapman, 2008; Mathur and Skelcher, 2007; Skelcher, 2005; Sørensen and Torfing,
2005; 2008; 2009; Wälti et al., 2004).
However, ‘optimistic’ and ‘pessimistic’ stances are not equally represented in the two
approaches under consideration. The PN literature tends to stress the negative conse-
quences of networks – their resistance to change and their democratic downside. As
Rhodes (2007, p. 1251) acknowledges:
Policy network analysis stresses how networks limit participation in the policy
process; decide which issues will be included and excluded from the policy
agenda; shape the behaviour of actors through the rules of the game; privilege
certain interests; and substitute private government for public accountability. It
is about stability, privilege and continuity.
As such, networks have been characterised as restrictive, closed, elitist, oriented towards
private interests, prone to corruption, illicit, non-accountable and essentially undemocratic
(Hay, 1998, p. 40). PNs have been identified as an important factor in explaining why
policy change and innovation are so difficult (Marsh and Rhodes, 1992b).
In contrast, the GN approach coincides with the normative rehabilitation of networks
within policy-making discourse and practice. Indeed, in its ‘folk’ version (Bevir, 2010,
p. 9), GN theory has contributed to the evolution and celebration of the network
paradigm. As Lowndes and Pratchett put it (2008, p. 681): ‘Rather than being shadow
arrangements (the dirty underbelly of the formal bureaucracy), networks are now cel-
ebrated as innovative, inclusive and efficient institutional arrangements’.The GN literature
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304 ISMAEL BLANCO, VIVIEN LOWNDES AND LAWRENCE PRATCHETT
In short, the PN approach is very close to an elitist model of power, while the GN
literature is closer to the pluralist tradition. The former stresses the privileged access of
certain elite actors to spaces in which key policy decisions are taken, highlighting the
dense and stable nature of their interactions with government. Significantly, the PN
approach does not call into question the hierarchical mode of governance, but states
simply that the institutional monopoly of decision making is ‘subverted’ by the incorpo-
ration of non-governmental elite actors. Indeed, this subversion of the Weberian ideal type
actually strengthens the power of elites by cementing cross-cutting links between business,
professions and government (Daugbjerg and Fawcett, 2010).
Conclusion
Policy networks have not given way to governance networks, and governance networks
have not evolved from policy networks. Rather, the cultivation of networks by policy
makers as a preferred paradigm for governance has thrown up new phenomena for study.
GN theories have flourished in this context, as has research into networks and partner-
ships on the ground. Such research has enabled the further elaboration of GN theory,
while also showing the distance that exists between ideal-typical network models and
actually existing partnerships – in terms of their overall effectiveness and their democratic
implications. Sørensen and Torfing (2008) distinguish between first- and second-
generation GN theorists, with the former focusing on the contribution and characteristics
of networks, and the latter addressing causes of network failure, conditions for success and
approaches to network management (or ‘metagovernance’).
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306 ISMAEL BLANCO, VIVIEN LOWNDES AND LAWRENCE PRATCHETT
At the same time, PN theories remain relevant to the study of policy making, particularly
for research into network variation and multi-level policy subsystems. The more sceptical
account associated with PNs provides a valuable counterbalance to the ‘optimistic’
character of the GN literature, which tends to underestimate the continued hold of (albeit
multi-sector) elites on policy making, and overstate the extent to which networks
represent a new ‘stage’ in the evolution of governance. Theoretically, the PN and GN
approaches are distinct, having different intellectual antecedents and making specific
claims about the origins, functioning and impact of network forms. While both types of
network may exist at one and the same time, to conflate them conceptually risks losing
much of the ‘epistemic gain’ which the application of competing theories can provide
(Calhoun, 2000, p. 538).
(Accepted: 1 March 2011)
Note
This work has benefited from three research grants awarded to Ismael Blanco: 2007 BP-A 0001 (AGAUR, Generalitat de
Catalunya); SEJ2007-6388/CPOL (Ministry of Science and Innovation, Government of Spain); and a Ramón y Cajal research
fellowship linked to the Pompeu Fabra University (Ministry of Science and Innovation, Government of Spain).
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