The Role-Bundling Problem: Designing Policy Intermediaries for Complex Governance

Public authorities rely on intermediaries to translate policy, coordinate implementation, represent stakeholders, and assess compliance. Existing research recognizes multiple intermediary roles but provides less guidance on which should reside in the same actor. We identify this as the role-bundling problem and propose a relational compatibility test rather than a new role taxonomy. The test examines the proximity or independence, accountability, and legitimacy that each function requires for a specific target and decision. Compatible roles can be bundled, with routine safeguards for transparency and fair access. When a combination threatens an essential relational requirement, designers must ask whether a credible functional firewall can protect it; if not, institutional separation is warranted. An environmental impact assessment illustration shows how the test connects relational diagnosis to design choice. Policy designers should configure role portfolios rather than select intermediary organizations one at a time.