Policy integration in urban policies as multi‑level policy mixes

Abstract

This paper analyses policy integration in the field of urban policies. Specifically, the policy framework on sustainable urban development promoted by various international organisations is analysed as an exemplar combining multi-sectoriality in its substantive dimension (policy goals in different policy subsystems) and integration in its procedural dimension (integration between policy actions across policy subsystems involved). It is assumed that urban policies often take the form of multi-level policy mixes, and that integration involves a process of collective action between different policy subsystems. Based on the literature on policy integration and actor-centred institutionalism frameworks, it is postulated that in the absence of clear indications about the integrated strategy and policy integration capacities in the policy frame, the collective action dilemmas that this strategy entails in local projects will prevail, reducing the possibility of policy integration. The implementation of the urban dimension of the European Union’s cohesion policy in Spain between 1994 and 2013 is analysed a total of 82 urban projects, where the integrated strategy is a central element but understood as multi-sectorial objectives rather than a complementarity between policy subsystems. Empirical results show a high level of diversity of objectives across policy sectors and a very low level of integration; specifically, a curvilinear pattern in the relationship between these two aspects. The results highlight the need to include policy instruments and capacities in the policy frame to address the collective action dilemmas that policy integration implies, especially if the policy frame calls for a broad multi-sectorial agenda across different policy subsystems.