Democratic metropolitan governance: experiences in five German metropolitan regions

The paper seeks to describe whether reflections about the legitimacy metropolitan governance arrangements found consideration in metropolitan reforms in five German metropolitan regions. Metropolitan regions are an increasingly relevant scale for political decision-making but mechanism for legitimacy and accountability did not keep pace. Given the fact that in most metropolitan institutions only indirect mechanisms of legitimacy such as regional assemblies with representatives from municipal councils or public-private governing boards are at work, one may expect that output legitimacy or legitimacy by performance is the dominant source for legitimacy in metropolitan governance. In fact, citizens care much about the quality and the prize of services such as waste management or public transport but less about the transparency of decision-making procedures behind these services - at least on the scale of the region. The results show a mixed picture. In two out of five regions, directly elected regional assembly have been established and now constitute genuine tiers of metropolitan politics where input and output legitimacy are combined. In other regions, the turn to flexible forms of governance opened up decision-making arenas for societal actors, but it seems that this opening of the policy process is very selective and comes at the expense of citizen participation.