Re-thinking policy and (multi-level) governance failure: What went wrong and why in the reception of Ukrainian refugees in Italy?

Abstract

Following the outbreak of the war in Ukraine and the arrival of 170,000 refugees, the already fragile Italian refugee system was forced to undergo major re-structuring and expansion. Re-organisation included the adoption of partially new multi-level governance relationships, as well as political instruments. Despite the widespread positive attitude of public opinion toward the Ukrainian refugees and the bipartisan support for their reception, the outcome of the policy has been not in line with the goals the proponents set out to achieve. In fact, there have been delays, poor assistance to those who have offered to host, and, in the end, a partial waste of the economic and human resources which were devoted to the reception itself. The purpose of this article is to investigate the origin and development of the “vices” of this process, departing from the interpretive lens on policy and governance failure. Our findings consolidate the theoretical challenge to the reductive binary rhetoric on success and failure, and the classic view of failure confined to formulation and implementation. In addition, the article shows that multi-level governance dynamics are strongly relevant in explaining the “vices” of policies, particularly highlighting the role, until now largely disregarded, of the latent conflicts between the actors involved. The study has benefited from 38 semi-structured interviews with political actors, including third-party organisations and public actors, the analysis of political documents, and local and national media.