The effect of size and the Nordic states鈥� responses to the COVID-19 pandemic : reactive or proactive?

Abstract

This paper examines whether the small size of the public administration of the seven Nordic countries affected the nature of their crisis responses, focusing on the mix between proactive and reactive strategies, during the early phases of the COVID-19 pandemic. Comparing across all seven cases, a key pattern emerges: the smaller the state 鈥� in terms of both population and administrative depth 鈥� the more likely it is to rely on reactive mechanisms at the outset. However, these same states also tend to be more flexible and socially cohesive, allowing for rapid adaptation. In contrast, larger Nordic states have broader institutional structures and more expertbased capacity; this promotes proactive planning but may be hampered by decentralization, bureaucratic silos, or institutional inertia. This study confirms that small states are more likely to begin with reactive responses due to limited resources; but their capacity for quick adaptation, voluntarism, and tight governance networks leads them to develop proactive measures over time. Thus, size alone does not determine effectiveness; it interacts with governance structures, administrative culture, and public trust. The crisis responses across the Nordic region demonstrate that proactive and reactive strategies coexist on a continuum; and that agility, learning, and institutional coordination are crucial to successful pandemic management, regardless of state size.