politscienceПолитическая наукаPolitical science1998-1775ИНИОН РАН10.31249/poln/2025.03.01politscience-1198Research ArticleСОСТОЯНИЕ ДИСЦИПЛИНЫГосударственные и негосударственные акторы в многоуровневых системах управления: от «железного треугольника» к соуправлениюState and non-state actors in multy-level governance systems: from the iron triangle to co-governanceСтародубцевА. В.StarodubtsevA. V.

Стародубцев Андрей Владимирович, кандидат политических наук, доцент департамента политологии и международных отношенийСанкт-Петербург

Starodubtsev Andrey

St, Petersburg

astarodubtsev@hse.ruЩербакА. В.ScherbakA. V.

Щербак Анна Васильевна, кандидат политических наук, независимый исследовательСанкт-Петербург 

Shcherbak Anna, independent researcher

St, Petersburg

СтремоуховД. А.StremoukhovD. A.

Стремоухов Денис Александрович, кандидат политических наук, старший преподаватель департамента политологии и международных отношенийСанкт-Петербург

Stremoukhov DenisSt, Petersburg 

dstremoukhov@hse.ruНациональный исследовательский университет «Высшая школа экономики»РоссияHSE UniversityRussian Federation20251509202503Многоуровневая политика и политико-территориальная гетерогенность1535Copyright © Стародубцев А.В., Щербак А.В., Стремоухов Д.А., 20252025Стародубцев А.В., Щербак А.В., Стремоухов Д.А.Starodubtsev A.V., Scherbak A.V., Stremoukhov D.A.This work is licensed under a Creative Commons Attribution 4.0 License.https://www.politnauka.ru/jour/article/view/1198

Статья посвящена меняющемуся процессу формирования и реализации государственной политики. Анализируя классическую и новейшую литературу в области исследований государственной политики (policy studies), авторы показывают, что вне зависимости от политического контекста процесс изменения той или иной государственной политики происходит на фоне выполнения государственными и негосударственными акторами новых ролей и создания концептуально новых форматов взаимодействия между ними. Авторы используют потенциал концепций многоуровневого управления (МУ) и сетевого управления для того, чтобы определить новые функции участников политического процесса и охарактеризовать основные направления дальнейших исследований в этой области. Анализ исследовательской литературы показал повсеместное увеличение созависимости всех заинтересованных стейкхолдеров, которые становятся неотъемлемой частью государственной политики, начиная от социальной повестки дня и заканчивая глобальными экологическими вызовами. Такие феномены как «соуправление», «регулирующее государство» и «частное управление» становятся экстремальными проявлениями происходящих качественных сдвигов в системах МУ. Для недемократических и нерыночных контекстов эти изменения также свойственны, хотя и ограничены определенными сферами государственной политики и производят иные эффекты. Неизбежными издержками в системах МУ являются подчинение политики частным интересам, потеря легитимности и размывание ответственности, а также обострение проблемы принципала-агента. Важным объяснением эффективности второго типа МУ является непротиворечивость распределения полномочий между уровнями управления, справедливое распределение издержек и возникновение дополнительных стимулов для сотрудничества между уровнями власти первого типа МУ.Последовательно данная статья, во-первых, рассматривает трансформацию функций государства и правительственных акторов в контексте МУ; во-вторых, демонстрирует влияние негосударственных акторов (бизнеса, некоммерческих организаций, а также международных и транснациональных структур) на разработку и / или корректировку государственной политики; в-третьих, фокусируется на эволюции действий различных участников МУ на этапах воплощения политических решений в жизнь и получения обратной связи; наконец, в-четвертых, анализирует степень влияния развития инструментов многоуровневого управления на государственную автономию как фундаментальную черту современных государств.

The article scrutinizes the current changes in the process of policy formulation and policy implementation. Analyzing classic and up-to-date literature on policy studies, the authors demonstrate that the new roles of stateand non-state actors and the new modes of their interaction serve as a background for policy change regardless of the political context it takes place in. The authors utilize the concepts of multi-level governance and network governance in order to identify the new functions actors take in a policy process and to outline the pathways for future research in the field.Literature overview demonstrates a pervasive increase in co-dependence of all stakeholders, who became an integral part of public policy, starting from social agenda and ending up with global environmental challenges. Such phenomena as cogovernance, regulatory state, and private government become extreme examples of shifts in quality of multi-level governance systems. These changes are also relevant for non-democratic and non-capitalist market contexts, even though they are limited to specific policy spheres and might produce different outcomes. Inevitable shortcomings of multi-level governance are a tendency of private capture of public policy, legitimacy decline and blurring of accountability as well as escalation of the principal-agent problem. The crucial explanation of multi-level governance efficiency lies in the coherence of layering of responsibilities, fair distribution of costs and additional incentives for cooperation among various layers of governance.The article is organized as follows. The first paragraph describes the role of the state and governmental actors under the conditions of multi-level governance. The second paragraph is devoted to the role of non-state actors (business, NGOs, international, and transnational organizations) in the process of policy formulation and policy change. Finally, the third paragraph focuses on the changes in actors’ behavior that take place at the stages of policy implementation and feedback. To conclude, the authors discuss how the development of multi-level governance influences state autonomy.

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The authors declare that there are no conflicts of interest present.