Provinces as metagovernors - steering water and soil system integration into spatial planning

Abstract

This study examines the role of Dutch provinces (Utrecht, Noord-Brabant and Drenthe) as metagovernors (actors who guide, coordinate and facilitate governance networks without direct hierarchical control), in the policy integration of water and soil systems within spatial planning. This policy integration is essential to ensure climate resilience in the Netherlands. Challenges related to drinking water extraction, flood protection and space for housing and employment are faced in the Netherlands (Deltares, 2021). The growing interdependence between water governance and spatial planning (Wiering & Immink, 2006; Woltjer & Al, 2007) must be intensified and spatial development should follow water and soil measures (IenW, 2023). The ‘Water and Soil Steering (WBS)’ policy aims to achieve this (IenW, 2024a). In enabling this integration, national and regional networks occur (Baulenas et al., 2020).

The underexamined role of the provinces in these (policy and governance) networks is discovered by participant observation, semi-structured interviews and a focus group. Findings indicate that provinces play an increasingly active but context-dependent role as ‘hands-on’ metagovernors (who foster consensus, share knowledge, and promote collaboration). Furthermore, the importance of the personality of individuals in taking this metagovernor’s role is highlighted. However, their ability to act as effective metagovernors is often constrained by limited resources, ambiguous mandates, and political or network-related tensions. This can lead to metagovernance and network failures (Sørensen & Torfing, 2007; Jessop, 2002; Kickert et al., 1997). To enable a more effective implementation of the WBS-policy, a shift from the status quo is needed. This calls for shifting power relations and tackling bottlenecks. Researchers, policymakers and planners should experiment with the use of collective financial instruments, public input and a neutral, non-affiliated metagovernor.