Policy implementation through multi-level governance: analysing practical implementation of EU air quality directives in Germany
研究了欧盟空气质量指令在德国的多层治理实施情况，基于137份德国空气质量与行动计划，发现该模式效果有限，地方决策者虽使用新规划权限但难以建立功能治理层。
Eurpean Union (EU) environmental policy has increasingly advanced multi-level governance (MLG) to improve policy implementation. MLG approaches mandate (sub-) national planning and introduce functional governance layers to match the biophysical scale of environmental problems. Whereas the literature on policy implementation has focused on the challenges posed by multi-level systems, the described EU approach relies on MLG as a strategy to better policy implementation. This contribution studies the implementation of EU air quality directives, drawing on all 137 German air quality and action plans, to explore how requirements of multi-level implementation are delivered on the ground. Overall, we find the model of implementing air quality policy through MLG of limited success. In particular, sub-national policy-makers use their new planning competencies but struggle to implement functional governance layers. Mirroring experiences from neighbouring EU policy fields, our findings raise the broader issue of ‘failed’ implementation versus a still untapped potential for adaptation and governance learning.