Skip to main content

Structural Reform: Municipal Mergers

  • Chapter
  • First Online:

Abstract

Structural reorganization using municipal mergers is a common form of local government reform. This chapter examines both the theoretical literature and associated empirical work on council consolidation. After briefly discussing the magnitude of amalgamation across the world, this chapter considers the various schools of thought on council consolidation before examining specific dimensions of local government, including scale economies, scope economies, interjurisdictional spillovers, economic development, administrative and strategic capacity and local democracy. Given the various theoretical expectations of the impact of amalgamation, this chapter then considers available empirical evidence on scale and scope economies, interjurisdictional externalities, economic growth, administrative capacity as well as local democracy. This chapter ends by concluding that the weight of empirical evidence indicates that municipal mergers have not met anticipations.

This is a preview of subscription content, log in via an institution.

Buying options

Chapter
USD   29.95
Price excludes VAT (USA)
  • Available as PDF
  • Read on any device
  • Instant download
  • Own it forever
eBook
USD   109.00
Price excludes VAT (USA)
  • Available as EPUB and PDF
  • Read on any device
  • Instant download
  • Own it forever
Softcover Book
USD   139.99
Price excludes VAT (USA)
  • Compact, lightweight edition
  • Dispatched in 3 to 5 business days
  • Free shipping worldwide - see info
Hardcover Book
USD   139.99
Price excludes VAT (USA)
  • Durable hardcover edition
  • Dispatched in 3 to 5 business days
  • Free shipping worldwide - see info

Tax calculation will be finalised at checkout

Purchases are for personal use only

Learn about institutional subscriptions

References

  • Andrews, R., and G. Boyne. 2009. Size, Structure and Administrative Overheads: An Empirical Analysis of English Local Authorities. Urban Studies 46 (4): 739–759.

    Article  Google Scholar 

  • Andrews, R., T. Entwistle, and V. Guarneros-Meza. 2018. Local Government Size and Political Efficacy: Do Citizen Panels Make a Difference? International Journal of Public Administration 42 (8): 664–676.

    Article  Google Scholar 

  • Aulich, C. 2005. Australia: Still a Tale of Cinderella? In Comparing Local Governance: Trends and Developments, ed. B. Denters and L.E. Rose. Basingstoke: Palgrave Macmillan.

    Google Scholar 

  • Bailey, S. 1999. Local Government Economics: Principles and Practice. Basingstoke: Macmillan.

    Book  Google Scholar 

  • Bain, J.S. 1951. Relation of Profit Rate to Industry Concentration: American Manufacturing 1936–1940. Quarterly Journal of Economics 65 (2): 293–324.

    Article  Google Scholar 

  • Baldersheim, H., and E.R. Lawrence. 2010. Territorial Choice: Rescaling Governance in European States. In Territorial Choice, ed. H. Baldersheim and L.E. Rose, 1–20. Houndmills: Palgrave Macmillan.

    Chapter  Google Scholar 

  • Baumol, W.J., J.C. Panzar, and R.D. Willig. 1982. Contestable Markets and the Theory of Industry Structure. San Diego: Harcourt Brace Jovanovich.

    Google Scholar 

  • Bel, G., and R. Gradus. 2018. Privatisation, Contracting-Out and Inter-Municipal Cooperation: New Developments in Local Public Service Delivery. Local Government Studies 44 (1): 11–21.

    Article  Google Scholar 

  • Bel, G., and M.E. Warner. 2015. Inter-Municipal Cooperation and Costs: Expectations and Evidence. Public Administration 93 (1): 52–67.

    Article  Google Scholar 

  • Bhatti, Y., and K.M. Hansen. 2011. Who “Marries” Whom? The Influence of Societal Connectedness, Economic and Political Homogeneity, and Population Size on Jurisdictional Consolidations. European Journal of Political Research 50 (2): 212–238.

    Article  Google Scholar 

  • Bikker, J., and D. van der Linde. 2016. Scale Economies in Local Production. Local Government Studies 42 (3): 441–463.

    Article  Google Scholar 

  • Bish, R. 2000. Local Government Amalgamations: 19th Century Ideas for the 21st Century. Toronto: Howe Institute.

    Google Scholar 

  • Blodgett, T. 1996. Current City-County Consolidation Attempts. Washington, DC: National Association of Counties.

    Google Scholar 

  • Blom-Hansen, J., K. Houlberg, S. Serritzlew, and D. Treisman. 2016. Jurisdiction Size and Local Government Policy Expenditure: Assessing the Effect of Municipal Amalgamation. American Political Science Review 110 (4): 812–831.

    Article  Google Scholar 

  • Boadway, R., and A. Shah. 2009. Fiscal Federalism: Principles and Practice of Multi-Order Governance. Cambridge, MA: Cambridge University Press.

    Book  Google Scholar 

  • Bordignon, M., F. Cerniglia, and F. Revelli. 2003. In Search of Yardstick Competition: A Spatial Analysis of Italian Municipality Property Tax Setting. Journal of Urban Economics 54 (2): 199–217.

    Article  Google Scholar 

  • Boyne, G.A. 1992. Local Government Structure and Performance: Lessons from America? Public Administration 70 (3): 333–357.

    Article  Google Scholar 

  • Boyne, G. 1995. Population Size and Economies of Scale in Local Government. Policy and Politics 23 (3): 213–222.

    Article  Google Scholar 

  • Boyne, G.A. 1996. Scale, Performance and the New Public Management: An Empirical Analysis of Local Authority Services. Journal of Management Studies 33 (6): 809–826.

    Article  Google Scholar 

  • ———. 1998. Public Choice Theory and Local Government. Basingstoke: Macmillan.

    Book  Google Scholar 

  • Brennan, G., and J. Buchanan. 1980. The Power to Tax: Analytical Foundations of a Fiscal Constitution. Cambridge, MA: Cambridge University Press.

    Google Scholar 

  • Breton, A. 1996. Competitive Government. An Economic Theory of Politics and Public Finance. New York: Cambridge University Press.

    Google Scholar 

  • Brueckner, J.K. 2003. Strategic Interaction Among Governments: An Overview of Empirical Studies. International Regional Science Review 26 (2): 175–188.

    Article  Google Scholar 

  • Byrnes, J., and B.E. Dollery. 2002. Do Economies of Scale Exist in Australian Local Government? A Review of the Research Evidence. Urban Policy and Research 20 (4): 319–414.

    Article  Google Scholar 

  • Caldas, P., D. Ferreira, B.E. Dollery, and R. Marques. 2018. Economies of Scope in Portuguese Local Government Using an Augmented Hicks-Moorsteen Approach. Regional Studies. https://doi.org/10.1080/00343404.2018.1508872.

  • Callanan, M., R. Murphy, and A. Quinlivan. 2012. Myths and Realities of Economies of Scale in Local Government. In Regional Studies Association – Irish Branch. Local Government Reform: Myth or Reality. Symposium, NUI Maynooth, 8 March.

    Google Scholar 

  • Carr, J.B., and R.C. Feiock. 1999. Metropolitan Government and Economic Development. Urban Affairs Review 34 (3): 476–488.

    Article  Google Scholar 

  • ———. 2016. City-County Consolidation and Its Alternatives: Reshaping the Local Government Landscape: Reshaping the Local Government Landscape. London: Routledge.

    Google Scholar 

  • Corness, R., and T. Sandler. 1986. Theory of Externalities, Public Goods and Club Goods. Cambridge, MA: Cambridge University Press.

    Google Scholar 

  • Costa, H., L.G. Veiga, and M. Portelo. 2015. “Interactions in Local Governments” Spending Decisions: Evidence from Portugal. Regional Studies 49 (9): 1441–1456.

    Article  Google Scholar 

  • Dafflon, B. 2015. The Assignment of Functions to Decentralized Government: From Theory to Practice. In Handbook of Multilevel Finance, 163–199. Cheltenham: Edward Elgar.

    Google Scholar 

  • Daraio, C., M. Diana, F. Di Costa, C. Leporelli, G. Matteucci, and A. Nastasi. 2016. Efficiency and Effectiveness in the Urban Public Transport Sector: A Critical Review With Directions for Future Research. European Journal of Operational Research 248 (1): 1–20.

    Article  Google Scholar 

  • De Borger, B., and K. Kerstens. 1996a. Cost Efficiency of Belgian Local Governments: A Comparative Analysis of FDH, DEA, and Econometric Approaches. Regional Science and Urban Economics 26 (2): 145–170.

    Article  Google Scholar 

  • ———. 1996b. Radial and Non-radial Measures of Technical Efficiency: An Empirical Illustration for Belgian Local Governments Using an FDH Reference Technology. Journal of Productivity Analysis 7 (1): 41–62.

    Article  Google Scholar 

  • De Borger, B., K. Kerstens, W. Moesen, and J. Vanneste. 1994. Explaining Differences in Productive Efficiency: An Application to Belgian Municipalities. Public Choice 80 (3): 339–358.

    Article  Google Scholar 

  • Denters, B., and L. Rose, eds. 2005. Comparing Local Governance: Trends and Developments. Basingstoke: Palgrave Macmillan.

    Google Scholar 

  • Denters, B., M. Goldsmith, A. Ladner, P.E. Mouritzen, and L. Rose. 2014. Size and Local Democracy. Cheltenham: Edward Elgar.

    Book  Google Scholar 

  • Dollery, B.E. 2017. When Push Comes to Shove: Forced Amalgamation in New South Wales Local Government. Paper presented to Local Politics Specialist Group, 67th Political Science Association Annual International Conference, University of Strathclyde, Glasgow, 10 April.

    Google Scholar 

  • Dollery, B.E., and E. Fleming. 2006. A Conceptual Note on Scale Economies, Size Economies and Scope Economies in Australian Local Government. Urban Policy and Research 24 (2): 271–282.

    Article  Google Scholar 

  • Dollery, B.E., and B. Grant. 2011. Economic Efficiency Versus Local Democracy? An Evaluation of Structural Change and Local Democracy in Australian Local Government. Journal of Interdisciplinary Economics 23 (1): 1–20.

    Article  Google Scholar 

  • Dollery, B., and L. Robotti, eds. 2008. Theory and Practice of Local Government Reform. Cheltenham: Edward Elgar.

    Google Scholar 

  • Dollery, B.E., and K. Yamazaki. 2018. Is Bigger Really Better? A Comparative Analysis of Municipal Mergers in Australian and Japanese Local Government. International Journal of Public Administration 41 (9): 725–734.

    Article  Google Scholar 

  • Dollery, B.E., L. Crase, and A. Johnson. 2006. Australian Local Government Economics. Sydney: University of New South Wales Press.

    Google Scholar 

  • Dollery, B.E., B. Grant, and M. Kortt. 2012. Councils in Cooperation: Shared Services and Australian Local Government. Sydney: Federation Press.

    Google Scholar 

  • Dollery, B.E., M. Kortt, and B. Grant. 2013. Funding the Future: Financial Sustainabilityand Infrastructure Finance in Australian Local Government. Sydney: Federation Press.

    Google Scholar 

  • Dollery, B.E., M.A. Kortt, and S. De Souza. 2015. Policy Analysis Capacity and Australian Local Government. In Policy Analysis in Australia, ed. B. Head and K. Crowley, 105–120. Bristol: Policy Press.

    Google Scholar 

  • Drew, J., and B.E. Dollery. 2014. Keeping It In-House: Households Versus Population as Alternative Proxies for Local Government Output. Australian Journal of Public Administration 73 (2): 235–246.

    Article  Google Scholar 

  • Drew, J., M. Kortt, and B. Dollery. 2014. Economies of Scale and Local Government Expenditure: Evidence from Australia. Administration & Society 46 (6): 632–653.

    Article  Google Scholar 

  • Dur, R., and K. Staal. 2008. Local Public Good Provision, Municipal Consolidation, and National Transfers. Regional Science and Urban Economics 38 (1): 160–173.

    Article  Google Scholar 

  • Durning, D. 1989. The Impacts of City County Government Consolidation. Athens: Carl Vinson Institute of Government.

    Google Scholar 

  • Ellingsen, T. 1998. Externalities vs. Internalities: A Model of Political Integration. Journal of Public Economics 68 (2): 251–268.

    Article  Google Scholar 

  • Fahey, G., J. Drew, and B.E. Dollery. 2016. Merger Myths: A Functional Analysis of Scale Economies in New South Wales Local Government. Public Finance and Management 16 (4): 362–382.

    Google Scholar 

  • Ferguson, C.E. 1969. The Neoclassical Theory of Production and Distribution. London: Cambridge University Press.

    Book  Google Scholar 

  • Garcea, J., and E.C.J. LeSage, eds. 2005. Municipal Reform in Canada: Reconfiguration, Re-Empowerment and Rebalancing. Toronto: Oxford University Press.

    Google Scholar 

  • Grindle, M. 1996. Challenging the State. Cambridge, MA: Cambridge University Press.

    Book  Google Scholar 

  • Grosskopf, S., and S. Yaisawarng. 1990. Economies of Scope in the Provision of Local Public Services. National Tax Journal 43: 61–74.

    Google Scholar 

  • Grossman, G., and Janet I. Lewis. 2014. Administrative Unit Proliferation. American Political Science Review 108 (1): 196–217.

    Article  Google Scholar 

  • Guarini, E., F. Magli, and F. Nobolo. 2018. Accounting for Community Building: The Municipal Amalgamation of Milan in 1873–1876. Accounting History Review 28 (1/2): 5–30.

    Article  Google Scholar 

  • Guerrini, A., G. Romano, C. Leardini, and M. Martini. 2015. The Effects of Operational and Environmental Variables on Efficiency of Danish Water and Wastewater Utilities. Water 7 (7): 3263–3282.

    Article  Google Scholar 

  • Haneda, S., A. Hashimoto, and T. Tsuneyoshi. 2012. Evaluating Administrative Efficiency Change in the Post-Merger Period: A Study on Ibaraki Prefecture (1979–2004). International Regional Science Review 35 (2): 237–262.

    Article  Google Scholar 

  • Hirschman, A.O. 1970. Exit, Voice and Loyalty. Cambridge, MA: Cambridge University Press.

    Google Scholar 

  • Holcombe, R., and D. Williams. 2009. Are There Economies of Scale in Municipal Government Expenditures? Public Finance and Management 9 (3): 416–438.

    Google Scholar 

  • Holmstrom, B., and J. Roberts. 1998. The Boundaries of the Firm Revisited. Journal of Economic Perspectives 12 (4): 73–94.

    Article  Google Scholar 

  • Holzer, M., J. Fry, E. Charbonneau, G. Van Ryzin, T. Wang, and E. Burnash. 2009. Literature Review and Analysis Related to Optimal Municipal Size and Efficiency. School of Public Affairs and Administration, Rutgers University, Newark. Available at www.nj.gov/dca/affiliates/luarcc/pdf/final_optimal_municipal_size_ & _efficiency.pdf

  • Isen, A. 2014. Do Local Government Fiscal Spillovers Exist? Evidence from Counties, Municipalities, and School Districts. Journal of Public Economics 110 (1): 57–73.

    Article  Google Scholar 

  • Kalb, A., B. Geys, and F. Heinemann. 2012. Value for Money? German Local Government Efficiency in a Comparative Perspective. Applied Economics 44: 201–218.

    Article  Google Scholar 

  • Keating, M. 1995. Size, Efficiency and Democracy: Consolidation, Fragmentation and Public Choice. In Theories of Urban Politics, ed. D. Judge, G. Stoker, and H. Wolman, 117–135. London: Sage.

    Google Scholar 

  • King, D. 1984. Fiscal Tiers: The Economics of Multilevel Government. London: George Allen and Unwin.

    Google Scholar 

  • Kuhlmann, S., and G. Bouckaert. 2016. Local Public Sector Reforms in Times of Crisis. London: Palgrave Macmillan.

    Book  Google Scholar 

  • Kushiner, J., and D. Siegel. 2008. Are Services Delivered More Efficiently After Municipal Amalgamations? Canadian Public Administration 48 (2): 251–267.

    Article  Google Scholar 

  • Lago-Penas, S., and J. Martinez-Vazquez, eds. 2013. Challenge of Local Government Size. Cheltenham: Edward Elgar Press.

    Google Scholar 

  • Leon-Moreta, A. 2015. Municipal Incorporation in the United States. Urban Studies 52 (16): 3160–3180.

    Article  Google Scholar 

  • Marques, R., and De Witte, K. (2011). “Is Big Better? On Scale and Scope Economies in the Portuguese Water Sector,” Economic Modelling, 28: 10091016.

    Article  Google Scholar 

  • Mason, E.S. 1949. The Current State of the Monopoly Problem in the United States. Harvard Law Review 62 (4): 1265–1285.

    Article  Google Scholar 

  • McDonnell, J. 2019. Municipality Size, Political Efficacy and Political Participation: A Systematic Review. Local Government Studies https://doi.org/10.1080/03003930.2019.1600510.

  • Miyazaki, T. 2018. Internalization of Externalities and Local Government Consolidation: Empirical Evidence from Japan. Empirical Economics 54 (3): 1061–1086.

    Article  Google Scholar 

  • Mussari, R., and P. Ruggiero. 2017. Merging for Capacity and a Capacity for Merging: Politicians, Citizens, and Discourses in Public Administrations. Financial Accountability and Management 33 (1): 27–47.

    Article  Google Scholar 

  • Narbón-Perpiñá, I., and K. De Witte. 2018a. “Local Governments” Efficiency: A Systematic Literature Review—Part I. International Transactions in Operational Research 25 (2): 431–468.

    Article  Google Scholar 

  • ———. 2018b. “Local Governments” Efficiency: A Systematic Literature Review—Part II. International Transactions in Operational Research 25 (4): 1107–1136.

    Article  Google Scholar 

  • Oakerson, R. 1999. Governing Local Public Economies: Creating the Civic Metropolis. Oakland: ICS Press.

    Google Scholar 

  • Oates, W.E. 1972. Fiscal Federalism. New York: Harcourt Brace Jovanovich.

    Google Scholar 

  • ———. 1999. An Essay on Fiscal Federalism. Journal of Economic Literature 37: 1120–1149.

    Article  Google Scholar 

  • OECD. 2019. Subnational Governments in OECD Countries: Key Data 2018 Edition. http://www.oecd.org/regional/Subnational-governments-in-OECD-Countries-Key-Data-2018.pdf. Accessed 11 Apr 2019.

  • Organization for Economic Co-operation and Development/United Cities and Local Governments (OECD/UCLG). 2016. Subnational Governments Around the World: Structure and Finance. Paris: OECD.

    Google Scholar 

  • Ostrom, V., C. Tiebout, and R. Warren. 1961. The Organization of Government in Metropolitan Areas: A Theoretical Inquiry. American Political Science Review 55 (4): 831–842.

    Article  Google Scholar 

  • Panzar, J.C., and R.D. Willig. 1981. Economies of Scope. American Economic Review 71 (2): 268–272.

    Google Scholar 

  • Pérez-López, G., D. Prior, J.L. Zafra-Gómez, and A.M. Plata-Díaz. 2016. Cost Efficiency in Municipal Solid Waste Service Delivery. Alternative Management Forms in Relation to Local Population Size. European Journal of Operational Research 255 (2): 583–592.

    Article  Google Scholar 

  • Polidano, C. 2000. Measuring Public Sector Capacity. World Development 28 (5): 805–822.

    Article  Google Scholar 

  • Sancton, A. 2000. Merger Mania. Montreal: McGill-Queen’s University Press.

    Google Scholar 

  • ———. 2011. Canadian Local Government: An Urban Perspective. Toronto: Oxford University Press.

    Google Scholar 

  • Shah, A., ed. 2006a. Local Governance in Industrial Countries. Washington, DC: World Bank.

    Google Scholar 

  • ———. 2006b. Chapter 1: The New Vision of Local Governance and the Evolving Roles of Local Governments. In Local Governance in Industrial Countries, ed. A. Shah, 1–46. Washington, DC: World Bank.

    Chapter  Google Scholar 

  • Swianiewicz, P. 2010. If Territorial Fragmentation Is a Problem, Is Amalgamation a Solution? An East European Perspective. Local Government Studies 36 (2): 183–203.

    Article  Google Scholar 

  • ———. 2018. If Territorial Fragmentation Is a Problem, Is Amalgamation a Solution? – Ten Years Later. Local Government Studies 44 (1): 1–10.

    Article  Google Scholar 

  • Tang, Wei, and G.J.D. Hewings. 2017. Do City–County Mergers in China Promote Local Economic Development? The Economics of Transition 25 (3): 439–469.

    Article  Google Scholar 

  • Tavaris, A.F. 2018. Municipal Amalgamations and Their Effects: A Literature Review. Miscellanea Geographica – Regional Studies in Development 22 (1): 5–15.

    Article  Google Scholar 

  • Tiebout, C. 1956. A Pure Theory of Local Public Expenditures. Journal of Political Economy 64 (2): 416–424.

    Article  Google Scholar 

  • Tomkinson, R. 2007. Shared Services in Local Government. Aldershot: Gower Publications.

    Google Scholar 

  • Van Houwelingen, P. 2017. Political Participation and Municipal Population Size: A Meta-Study. Local Government Studies 43 (3): 408–428.

    Article  Google Scholar 

  • Vojnovic, I. 1997. Municipal Consolidation the 1990s: An Analysis of Five Canadian Municipalities. Toronto: ICURR Press.

    Google Scholar 

  • Wildasin, D.E. 1986. Urban Public Finance. Chur: Harwood.

    Google Scholar 

Download references

Author information

Authors and Affiliations

Authors

Corresponding author

Correspondence to Brian Dollery .

Rights and permissions

Reprints and permissions

Copyright information

© 2020 The Author(s)

About this chapter

Check for updates. Verify currency and authenticity via CrossMark

Cite this chapter

Dollery, B., Kitchen, H., McMillan, M., Shah, A. (2020). Structural Reform: Municipal Mergers. In: Local Public, Fiscal and Financial Governance. Palgrave Macmillan, Cham. https://doi.org/10.1007/978-3-030-36725-1_8

Download citation

  • DOI: https://doi.org/10.1007/978-3-030-36725-1_8

  • Published:

  • Publisher Name: Palgrave Macmillan, Cham

  • Print ISBN: 978-3-030-36724-4

  • Online ISBN: 978-3-030-36725-1

  • eBook Packages: Economics and FinanceEconomics and Finance (R0)

Publish with us

Policies and ethics