The drivers of multilevel governance as a mode of policymaking: the case of asylum-seekers' reception in Italy

This article analyses modes of policymaking related to asylum-seekers' reception in Italy and other European Union (EU) countries during the decade of the so-called 2015 asylum crisis. It shows that, while most EU countries experienced shifts towards more hierarchical modes of policymaking on asylum, Italy pursued a unique experience of multilevel governance (MLG) between 2014 and 2016, which was then dismantled in 2017. By looking at this MLG experience as a 'heuristic case', the article contributes to an ongoing debate about the drivers of MLG as a mode of policymaking. The existing literature suggests that MLG modes of policymaking are driven by institutional and structural factors or pressure by subnational and supranational actors for more participatory policymaking processes. Complementing and challenging these theoretical explanations we generate some hypotheses about additional factors that drive the emergence and dismantling of MLG. First, we argue that both supranational actors and subnational authorities, typically considered to be agents promoting MLG, can also advocate for more hierarchical modes of policymaking. Second, we argue that a fundamental prerequisite for MLG to emerge or persist is an overall convergence of political priorities and goals among the actors involved in multilevel policymaking. Both the kind of pressures made by supranational and subnational actors and actors' political priorities can be decisively shaped by dynamics of multilevel party politics. These findings are derived from analyses of 147 interviews with key actors involved in Italian asylum policymaking in the 2010s.