Public Administration Leaders as Institutional Entrepreneurs: Dispute over the Location of a Marketplace

Abstract

Interpretation of this case is built around the role of individuals and, specifically, of intra-organizational leaders in the processes of institutionalization and learning of new governance patterns. The analysis illustrates that even in the face of complex problems and public pressure for inclusion of external stakeholders, the shift from government to governance is neither obvious nor necessary. As the old, hierarchical ways remain the default option, whether the new way of governing will be enacted depends solely on the mobilization and purposive efforts of institutional entrepreneurs acting within the organizational structures of the administration.

The authorities of this town do not talk to people. They are afraid of people (…) I can see fear in their eyes when something like this happens: protests, openly expressed dissatisfaction of certain groups. First, they never consult any ideas either with us – lower level municipality administration – or with the stakeholder groups, because they think we are stupid and have nothing to contribute. When they eventually do something, they get lambasted. And then they start fretting again: ‘What shall we do in order to reverse it’?

Municipality Mayor, interview, March 2013