Intra-European Movement: Multi-Level or Mismatched Governance?

The case of intra-EU mobility raises significant debate about multi-level governance (MLG) both in analytical terms – how multi-level is governance of intra-EU mobility, what actors are involved and how? – and normative terms – can intra-EU mobility be seen as ‘successful’ multi-level governance? Intra-EU mobility is an area that faces both issue complexity and institutional complexity (Stephenson, 2013, pp. 817) and as such, the governance arrangements are often correspondingly complex. This chapter will attempt to locate the case of intra-EU mobility within the broader literature on multi-level governance and try to draw out lessons for understanding MLG as a practical, analytical and normative concept. This is relevant to both the understanding of intra-EU mobility and the understanding of MLG. On the one hand, additional cases help to support or refute the robustness of our conceptualisation of multi-level governance; on the other hand, MLG as a concept can help us to understand the entanglement of a complex issue that cuts across political and policy bounds. The chapter will first develop a framework of multi-level governance that can be applied to intra-EU migration. Then, the structural, relational and policy factors that affect MLG will be explored in the context of this specific case. The final section will try to craft some answers about what intra-EU migration policy can tell us about multi-level governance, and vice versa