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

The paper explores an alternative lens, i.e., 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.