Analyzing multi-level governance dynamics from a discourse network perspective: the debate over air pollution regulation in Germany

Abstract

Abstract Background Designed to set limits to air pollutant emissions, EU Directive 2008/50/EG has pushed city administrations to strengthen their commitment to environmental protection with mixed results. However, the effectiveness of these policies remains suboptimal. Within this context, this paper provides original empirical evidence on the nature and evolution of the debate over air pollution in the EU that helps readers understand how the interplay among discourse coalitions across levels of governance relates to the implementation of air pollution directives in Europe. To provide this evidence, we apply the discourse-coalition framework to a multi-level governance context by comparing debates over air pollution and examining their evolution in different contexts through the use of discourse network analysis. Results Our results show that the debate in the EU institutions is largely dominated by pro-environmental coalitions, whereas discussions in Stuttgart and Berlin show different degrees of permeability to such arguments. Hence, the relative prominence of certain actors and levels of governance in the local discourse helps explain the extent to which debates at the local level align with the arguments put forward by the EU institutions. For their part, governmental organizations have a tendency to act as bridges between discourse coalitions. Conclusions This novel empirical evidence provides clues that help make sense of the varying levels of implementation of EU air pollution directives at the local level. In this regard, the ability of supranational and national bodies to align their discourse with those of local organizations might facilitate a common understanding and the successful implementation of EU policies. Policymakers aiming to improve air quality at the local level may want to consider engaging actively with this debate by reinforcing the arguments of pro-environmental coalitions. They may also want to make a special effort to ensure that the messages conveyed to supranational and national bodies are also effectively conveyed to lower levels of governance.