Territorial intelligence, multilevel governance and organizational learning: An integrated systemic model for the institutional construction of new municipalities

Abstract

Introduction: The creation of a municipality is usually assessed through legal, demographic, and financial requirements. This approach does not explain how a territory develops the capacities needed to coordinate actors, produce knowledge, learn, and sustain a legitimate public organization. Materials and methods: A theoretical-conceptual study was conducted based on an integrative literature review. The analysis addressed four closely connected issues: coordination among the different levels of government and territorial stakeholders; the production and use of territorial knowledge; learning within organizations; and the capacities required to build a solid municipal institutional framework. Results: The Integrated Systemic Municipal Territorial Intelligence Model (MITM) was formulated. It links territorial conditions, multilevel governance, institutional coordination, organizational learning, territorial intelligence, adaptive capacity, and institutional construction. It also identifies cross-cutting conditions, blockages, analytical propositions, and observation criteria. Conclusions: Territorial intelligence is understood as an organizational and collective capacity that integrates knowledge, responsibilities, learning, and decisions. Legal creation may recognize a municipality, but governing capacity depends on prior and subsequent processes of coordination, adaptation, and institutionalization.