Coordination
#3Key Findings
Denmark falls into the top group internationally (rank 3) in the category of coordination.
The Prime Minister’s Office has been expanded in recent years, and a Political Secretariat has been created to improve coordination among ministers. Internal policy coordination occurs through an Economic Committee and a Coordination Committee, as well as through a newer Green Committee tasked with overseeing cross-ministerial environmental policies.
The tradition of ministerial rule means that each minister is in charge of a specific area, but the cabinet operates as a collective unit. Governments are often minority or coalition-based, and thus rely on informal contact and coordination, including with opposition parties and interest groups.
The constitution mandates delegation to local units, allowing municipalities to manage their own affairs under state supervision. This creates some tension between local autonomy and the goal of uniform standards, but the central government uses benchmarks to monitor local performance. Cooperation between the state, regions and municipalities is institutionalized.
The Prime Minister’s Office has been expanded in recent years, and a Political Secretariat has been created to improve coordination among ministers. Internal policy coordination occurs through an Economic Committee and a Coordination Committee, as well as through a newer Green Committee tasked with overseeing cross-ministerial environmental policies.
The tradition of ministerial rule means that each minister is in charge of a specific area, but the cabinet operates as a collective unit. Governments are often minority or coalition-based, and thus rely on informal contact and coordination, including with opposition parties and interest groups.
The constitution mandates delegation to local units, allowing municipalities to manage their own affairs under state supervision. This creates some tension between local autonomy and the goal of uniform standards, but the central government uses benchmarks to monitor local performance. Cooperation between the state, regions and municipalities is institutionalized.
Graph View
Graph View
To what extent do established coordination mechanisms between the government’s office and line ministries effectively enhance policy coherence?
10
9
9
Functional coordination mechanisms between line ministries and the GO/PMO, aimed at enhancing policy coherence, are in place.
8
7
6
7
6
Largely functional coordination mechanisms between line ministries and the GO/PMO, aimed at enhancing policy coherence, are in place.
5
4
3
4
3
Coordination mechanisms between line ministries and the GO/PMO, aimed at enhancing policy coherence, are only somewhat functional.
2
1
1
Coordination mechanisms between line ministries and the GO/PMO, aimed at enhancing policy coherence, are not at all functional.
The Social Democratic prime minister during the review period, Mette Frederiksen, has argued that the Prime Minister’s Office is too weak compared to the Ministry of Finance and the line ministries. Since first taking office in 2019, she has increased the number of employees dramatically, adding approximately 20 full-time staff and expanding the ministry’s size from 84 to 104 full-time academic employees.
Prime Minister Frederiksen also established the Political Secretariat to ensure better coordination among ministers and to monitor whether ministries are following legislative plans. This move was criticized by the opposition, which argued that there is no tradition in Denmark for political appointees taking on significant posts in ministries. However, it was defended by the prime minister, who contended that the posts would ensure that the government’s policy line would be respected. The official description of the Political Secretariat on the PMO’s website states that it has “a special focus on the government’s priority projects and policy development, and is working to strengthen the strategic direction of the government and increase internal coordination between ministers and special advisers.”
The government in power during the review period was composed of the Social Democratic Party, the Liberal Party (Venstre) and the Moderates (Moderaterne). The Liberals and Social Democrats have historically been political rivals. Consequently, when the government formed, it also created the Committee for Government Management. The three party leaders from the governing parties are members of this committee, as are the minister of finance and the minister of economic affairs (Regeringsgrundlag 2022).
Internal government coordination of policy takes place in two central committees that in practice serve as inner cabinets. The first committee is called the Economic Committee (økonomi udvalget) and the second is the Coordination Committee (koordinationsudvalget). The number of members in these committees varies according to the number of parties in the government. The Economic Committee is always chaired by the minister of finance and, under the current government, has eight members: three Social Democrats, three from the Liberal Party and two from the Moderates.
Finally, since the enactment of the Climate Law in 2020, the government has been required to form a Green Committee. This committee, consisting of six members, is chaired by the minister of finance and is required to follow cross-ministerial environmental policies. The committee meets weekly.
Citations:
Regeringsgrundlag 2022. Ansvar for Danmark. https://www.stm.dk/statsministeriet/publikationer/regeringsgrundlag-2022/
Prime Minister Frederiksen also established the Political Secretariat to ensure better coordination among ministers and to monitor whether ministries are following legislative plans. This move was criticized by the opposition, which argued that there is no tradition in Denmark for political appointees taking on significant posts in ministries. However, it was defended by the prime minister, who contended that the posts would ensure that the government’s policy line would be respected. The official description of the Political Secretariat on the PMO’s website states that it has “a special focus on the government’s priority projects and policy development, and is working to strengthen the strategic direction of the government and increase internal coordination between ministers and special advisers.”
The government in power during the review period was composed of the Social Democratic Party, the Liberal Party (Venstre) and the Moderates (Moderaterne). The Liberals and Social Democrats have historically been political rivals. Consequently, when the government formed, it also created the Committee for Government Management. The three party leaders from the governing parties are members of this committee, as are the minister of finance and the minister of economic affairs (Regeringsgrundlag 2022).
Internal government coordination of policy takes place in two central committees that in practice serve as inner cabinets. The first committee is called the Economic Committee (økonomi udvalget) and the second is the Coordination Committee (koordinationsudvalget). The number of members in these committees varies according to the number of parties in the government. The Economic Committee is always chaired by the minister of finance and, under the current government, has eight members: three Social Democrats, three from the Liberal Party and two from the Moderates.
Finally, since the enactment of the Climate Law in 2020, the government has been required to form a Green Committee. This committee, consisting of six members, is chaired by the minister of finance and is required to follow cross-ministerial environmental policies. The committee meets weekly.
Citations:
Regeringsgrundlag 2022. Ansvar for Danmark. https://www.stm.dk/statsministeriet/publikationer/regeringsgrundlag-2022/
To what extent are there positive (formalized) forms of coordination across ministries that aim to enhance policy coherence?
10
9
9
Interministerial coordination mechanisms targeting policy coherence provide incentives for identifying synergies and opportunities.
8
7
6
7
6
Interministerial coordination mechanisms targeting policy coherence sometimes provide incentives for identifying synergies and opportunities.
5
4
3
4
3
Interministerial coordination mechanisms targeting policy coherence rarely provide incentives for identifying synergies and opportunities.
2
1
1
There are no interministerial coordination mechanisms targeting policy coherence that provide incentives for identifying synergies and opportunities.
There is a strong tradition of so-called ministerial rule (ministerstyre). Each minister is in charge of a specific area, but the cabinet operates as a collective unit, and is expected to maintain a single policy focus, directed by the prime minister.
Overall responsibility is coordinated through special committees. The most important is the government coordination committee, which meets weekly and plays a crucial role, especially for coalition governments. Other committees include the committee on economic affairs, the security committee and the appointments committee. There is also a tradition of two-day government seminars once or twice per year where important government issues are discussed. Finally, ad hoc committees are routinely formed within ministries when new legislation is being prepared.
To become the permanent secretary, the highest civil servant in a ministry, candidates are now required to have leadership experience from an agency within a different ministry. This relatively new requirement is intended to ensure that top civil servants possess broad knowledge of the public sector. Moreover, it is believed to improve the understanding of implementation issues among the upper levels of ministerial hierarchies.
Overall responsibility is coordinated through special committees. The most important is the government coordination committee, which meets weekly and plays a crucial role, especially for coalition governments. Other committees include the committee on economic affairs, the security committee and the appointments committee. There is also a tradition of two-day government seminars once or twice per year where important government issues are discussed. Finally, ad hoc committees are routinely formed within ministries when new legislation is being prepared.
To become the permanent secretary, the highest civil servant in a ministry, candidates are now required to have leadership experience from an agency within a different ministry. This relatively new requirement is intended to ensure that top civil servants possess broad knowledge of the public sector. Moreover, it is believed to improve the understanding of implementation issues among the upper levels of ministerial hierarchies.
How effectively do informal coordination mechanisms complement formal mechanisms of interministerial coordination?
10
9
9
Informal coordination mechanisms complement formal mechanisms of interministerial coordination.
8
7
6
7
6
In most cases, informal coordination mechanisms complement formal mechanisms of interministerial coordination.
5
4
3
4
3
In some cases, informal coordination mechanisms undermine formal mechanisms of interministerial coordination.
2
1
1
Informal coordination mechanisms undermine formal mechanisms of interministerial coordination.
Given that Danish governments are typically either minority or coalition governments (or both), informal contact and coordination are important. The country’s consensus-driven political tradition means this also applies to contacts with opposition parties and interest groups, particularly employer and employee organizations that play an important role in shaping labor market and collective bargaining issues. Tripartite agreements are frequent in this context.
Informal mechanisms can enhance the efficiency of formal meetings; however, crucial decisions must be confirmed in more formal settings. At the political level, informal mechanisms are likely more important than formal ones (Christiansen et al 2022).
Furthermore, there is an exchange of employees between ministries, trade associations and municipalities, ensuring that informal networks are formed (VIVE 2022). However, recent work also suggests that leaders are more likely to change sectors than to change levels of government, for instance by moving from a leadership position in a municipality to taking a job in a ministry.
Citations:
Christiansen, Peter Munk, Asbjørn Sonne Nørgaard and Rikke Berg. 2022. Politik og forvaltning. København: Hans Reitzel.
VIVE. 2022. “Ledermobilitet. Afdækning af motiver og barrierer.” https://www.vive.dk/da/udgivelser/ledermobilitet-bxqk2qxk
Informal mechanisms can enhance the efficiency of formal meetings; however, crucial decisions must be confirmed in more formal settings. At the political level, informal mechanisms are likely more important than formal ones (Christiansen et al 2022).
Furthermore, there is an exchange of employees between ministries, trade associations and municipalities, ensuring that informal networks are formed (VIVE 2022). However, recent work also suggests that leaders are more likely to change sectors than to change levels of government, for instance by moving from a leadership position in a municipality to taking a job in a ministry.
Citations:
Christiansen, Peter Munk, Asbjørn Sonne Nørgaard and Rikke Berg. 2022. Politik og forvaltning. København: Hans Reitzel.
VIVE. 2022. “Ledermobilitet. Afdækning af motiver og barrierer.” https://www.vive.dk/da/udgivelser/ledermobilitet-bxqk2qxk
Graph View
To what extent does central government ensure that subnational self-governments meet national (minimum) standards in delivering public services?
10
9
9
The central government effectively ensures that subnational self-governments successfully meet national standards for public service delivery.
8
7
6
7
6
Most of the time, the central government ensures that subnational self-governments successfully meet national standards for public service delivery.
5
4
3
4
3
The central government rarely ensures that subnational self-governments successfully meet national minimum standards for public service delivery.
2
1
1
The central government does nothing to ensure that subnational self-governments successfully meet national standards for public service delivery.
Article 82 of the Danish constitution stipulates requires delegation to local units in Denmark, and further states: “The right of municipalities to manage their own affairs independently, under state supervision, shall be laid down by statute.” This creates a tension between municipalities’ rights to deliver policies adjusted to local circumstances and the welfare state objective of ensuring the same standard for everyone. Media reports highlighting different levels of service in key policy areas across municipalities have drawn particular attention.
National laws set standards with varying degrees of discretion for local authorities. The central government can supervise whether standards are met through benchmarks and tests, and can require the publication of performance indicators such as hospital waiting list outcomes and school performance results. The country’s active press plays a role in exposing problems. The central government – which bears ultimate political responsibility – can intervene by setting stricter standards or by transferring extra funds to certain activities.
Rhetorical action, such as shaming underachievers, is also sometimes part of the strategy. A recent example includes proposals to introduce minimum standards for various public services. This aims to reduce variation across the municipalities.
The Danish government has a reasonably good track record in terms of implementing its agenda. Budget arrangements – including the Budget Law – lay out a clear framework for how regions and municipalities operate in this regard.
Since regional and municipal governments interact directly with citizens, they must also manage public expectations regarding the level and quality of services, despite often having limited scope for action. The degree of autonomy afforded to municipalities has fluctuated over the years. Some have suggested that regions, which are primarily responsible for healthcare services, should be eliminated, with their responsibilities taken over directly by the central government.
Until recently, there has been discussion about setting national minimum standards in key welfare areas like daycare and old-age care. However, a recent government initiative aims to provide more decentralized choice and responsibility, anticipating that this will lead to greater efficiency and a better ability to meet citizen demands.
Citations:
Frederiksen. 2023. “Opening speech to parliament.” https://www.stm.dk/statsministeren/taler/statsministerens-tale-ved-folketingets-aabning-den-3-oktober-2023
National laws set standards with varying degrees of discretion for local authorities. The central government can supervise whether standards are met through benchmarks and tests, and can require the publication of performance indicators such as hospital waiting list outcomes and school performance results. The country’s active press plays a role in exposing problems. The central government – which bears ultimate political responsibility – can intervene by setting stricter standards or by transferring extra funds to certain activities.
Rhetorical action, such as shaming underachievers, is also sometimes part of the strategy. A recent example includes proposals to introduce minimum standards for various public services. This aims to reduce variation across the municipalities.
The Danish government has a reasonably good track record in terms of implementing its agenda. Budget arrangements – including the Budget Law – lay out a clear framework for how regions and municipalities operate in this regard.
Since regional and municipal governments interact directly with citizens, they must also manage public expectations regarding the level and quality of services, despite often having limited scope for action. The degree of autonomy afforded to municipalities has fluctuated over the years. Some have suggested that regions, which are primarily responsible for healthcare services, should be eliminated, with their responsibilities taken over directly by the central government.
Until recently, there has been discussion about setting national minimum standards in key welfare areas like daycare and old-age care. However, a recent government initiative aims to provide more decentralized choice and responsibility, anticipating that this will lead to greater efficiency and a better ability to meet citizen demands.
Citations:
Frederiksen. 2023. “Opening speech to parliament.” https://www.stm.dk/statsministeren/taler/statsministerens-tale-ved-folketingets-aabning-den-3-oktober-2023
To what extent do national policymakers effectively collaborate with regional and local governments to improve the delivery of public services?
10
9
9
National policymakers work effectively with regional and local governments to improve the delivery of public services.
8
7
6
7
6
In general, national policymakers work effectively with regional and local governments to improve the delivery of public services.
5
4
3
4
3
National policymakers rarely work effectively with regional and local governments to improve the delivery of public services.
2
1
1
There is no effective multilevel cooperation between the central and subnational governments.
Cooperation between the state, regions and municipalities has been highly institutionalized since the 1970s, and two budgetary mechanisms ensure that regions and municipalities can deliver the services required. Reforms have also reduced the number of municipalities and counties/regions.
As part of preparing the fiscal bill, representatives from the Ministry of Finance meet each spring with representatives from municipalities in the Association of Municipalities (Kommunernes Landsforening) and representatives of the Danish regions (Danske Region). In these negotiations, target service levels are set in accordance with the law. The negotiations also cover taxation levels in the municipalities. Finally, the negotiations are used to signal to regions and municipalities which issues should be given political priority (Finansministeriet n.d.).
Second, a balancing principle ensures that transfers are adjusted when new legislation is passed. The idea is that lower levels of government should be compensated when service portfolios change. Hence, if new services are added, lower levels of government receive a greater volume of transfers, while a reduction in services results in transfer cuts (Finansministeriet, 2007).
While these budgetary mechanisms have proven robust, there is nevertheless a predictable and observed blame game between municipalities and the state whenever problems arise in the delivery of services. Very often, the press reports that mayors blame the state for not providing sufficient funds for the services that must be delivered. Thus, there is an inherent tension and potential conflict between mayors from the opposition party and the prime minister and, by extension, the government.
Citations:
Finansministeriet. n.d. “Aftalesystemet.” https://fm.dk/arbejdsomraader/kommuner-og-regioner/aftalesystemet/
Finansministeriet. 2007. Vejledning om Det Udvidede Totalbalanceprincip (DUT). https://www.retsinformation.dk/eli/mt/2007/63
As part of preparing the fiscal bill, representatives from the Ministry of Finance meet each spring with representatives from municipalities in the Association of Municipalities (Kommunernes Landsforening) and representatives of the Danish regions (Danske Region). In these negotiations, target service levels are set in accordance with the law. The negotiations also cover taxation levels in the municipalities. Finally, the negotiations are used to signal to regions and municipalities which issues should be given political priority (Finansministeriet n.d.).
Second, a balancing principle ensures that transfers are adjusted when new legislation is passed. The idea is that lower levels of government should be compensated when service portfolios change. Hence, if new services are added, lower levels of government receive a greater volume of transfers, while a reduction in services results in transfer cuts (Finansministeriet, 2007).
While these budgetary mechanisms have proven robust, there is nevertheless a predictable and observed blame game between municipalities and the state whenever problems arise in the delivery of services. Very often, the press reports that mayors blame the state for not providing sufficient funds for the services that must be delivered. Thus, there is an inherent tension and potential conflict between mayors from the opposition party and the prime minister and, by extension, the government.
Citations:
Finansministeriet. n.d. “Aftalesystemet.” https://fm.dk/arbejdsomraader/kommuner-og-regioner/aftalesystemet/
Finansministeriet. 2007. Vejledning om Det Udvidede Totalbalanceprincip (DUT). https://www.retsinformation.dk/eli/mt/2007/63