Agency in multi-level governance systems: The implementation puzzle and the role of ‘intelligent’ local implementers

The qualitative paper explores an alternative lens, that is, informed by a complexity perspective, through which to frame the adaptive role of local implementers in multi-level governance systems. It argues that three key tenets of complexity thinking – emergence, self-organisation and co-evolution – can help better explain that role. The re-conceptualisation of local actors – from agents to stewards – and of central government – from controller to enabler – are identified as the conditions that allow intelligent actors to leverage local varieties to deliver context-specific solutions. The paper ends with actionable measures that can enhance the self-steering capacity of policy systems.