Governing the Embedded State
6
very different ambitions, strategies, and goals. All this creates difficulties for
the governors.
We believe that the challenges to governing have gradually increased, not
least because states are open to forces of globalization and Europeanization.
Activities in our object of study—the Swedish state—are strongly influenced
by agendas in the EU, other international organizations, standards organi-
zations, nongovernmental organizations, etc. Ideas and rules concerning a
wide range of activities and policies ranging from sustainable environmental
policies to employment strategies and administrative reform are propagated
and disseminated in processes where the Swedish state has become less of rule
maker and more of a recipient and addressee of rules and ideas. Generally,
governing directed towards other states and other international actors has
become more important. A myriad of organizations, associations, and profes-
sions all over the world are involved in issuing rules aimed at states (Brunsson
and Jacobsson, 2000; Jacobsson, 2010).
An important consequence of globalizing and Europeanizing forces is that
the gap between what national politicians are able to influence, on the one
hand, and what they are held responsible for, on the other, has widened.
In this vein, arguments have been proposed that the state as an actor is in
the process of becoming less relevant than before and that global processes
are gradually replacing the state as “the decisive framework for social life”
(Featherstone and Lash, 1995:2). Even if it is true that states are overwhelm-
ingly influenced by matters crossing the borders of the state and more than
ever forced to cooperate with other states, international organizations, NGOs,
etc., predictions about the growing irrelevance of states have by and large
proved wrong. Even if state capacities in many fields are not as powerful as
they have been, states are still important actors (Bell and Hindmoor, 2009;
Ray, 2007; Pierre, 2013; Sørensen, 2003). Despite Europeanization and glo-
balization, citizens, not least in the state-centric political culture in Sweden,
still expect the state to solve societal problems. Unlike citizens of many other
EU member states Swedes trust domestic institutions to a much higher degree
than EU institutions (Holmberg and Weibull, 2013).
The internal complexities of states have also increased, partly as a conse-
quence of the wider institutional changes. More than before, state organiza-
tions could be seen as some kind of hybrid organizations, where Weberian
ideals exist in conjunction with ideals about responsiveness, efficiency, com-
petition, service orientation, and ethics. The administrative policy objective
set by the Swedish Parliament is emblematic in this respect. It says that all
Swedish public agencies are to contribute to achieve:
. . . An innovative and collaborative central government administration that is
legally secure and efficient, has a high degree of quality, service and accessibility,