European cities have built cooperative relations through transnational municipal networks (TMNs). Most of the dedicated literature has relied on the multi-level governance (MLG) framework, claiming that the establishment of TMNs has been favoured by the multi-tier and multi-actor system of governance developed within the European Union. While MLG can help to illustrate the characteristics and functions of TMNs, it does not enable to explain the engagement of European cities in these organisations. This article therefore identifies and discusses the analytical and operational limitations of the MLG approach. It is claimed that the MLG framework does not provide a suitable analytical approach to shed light on the economic, political and institutional drivers of the participation of European cities in TMNs. By way of contrast, an urban approach hinging on the urban level may address the MLG's analytical and empirical shortcomings.
Keywords
Multi-level governance; Transnational municipal networks; European Union; Local governmentIn the fields of European and urban studies, the literature on subnational mobilisation has burgeoned relatively recently. Within this research domain, transnational municipal networks (TMNs), organisations made up of cities located in different countries, received particular interest (see Pierre for a multilevel governance (MLG) approach, conceiving TMNs as a by-product of the system of MLG characterising the European polity (Mocca 2017a: 692). Accordingly, the multi-level governing arrangements in place in the European Union (EU) have fostered the diffusion of TMNs, thanks to the distribution of policy functions across various governmental tiers and the presence of access points to the decision-making process for non-state entities (Mocca 2017a).While being a dominant approach in European studies along with intergovernmentalism and neofunctionalism, the MLG framework presents some analytical and operational flaws that question its validity to analyse the phenomenon of transnational municipalism in Europe. While comprehensively describing EU governing arrangements, characterised by the displacement of authority across multiple levels of government and by the involvement of various public and non-public, state and non-state actors in decision-making, MLG can provide neither the theoretical base nor the analytical tools to investigate the engagement of cities in TMNs.By adopting the MLG approach, some questions about local governments' participation in TMNs are left unanswered: what factors determine the participation of cities in TMNs? What explains the different propensity of cities to engage at the EU level? By privileging a non-hierarchical treatment of the different tiers of government, although skewed towards a top-down perspective, the MLG approach does not allow the level and/or the group of actors that have a more prominent role in a