Public Sector ‘Modernisation’: Examining the Impact of a Change Agenda on Local Government Employees in England

Can public sector reform change service performance for the better? This is a hotly contested debate that carries significant theoretical and practical importance. In England, as in many countries, modernisation was at the heart of local government reform and represented an interpretation of New Public Management into a policy framework. This paper examines the role of the modernisation change agenda in England and what this has subsequently meant for ‘service improvement’. Drawing on both document analyses and qualitative interviews with local government employees, we find that while modernisation sought to establish continuous improvement, unintended consequences of modernisation have led to Staff Reductions, Skill Deficiencies, and Loss of a Competent Middle Core in local government, as well as performance outcomes creating an environment for Commissioning, Service Reduction, and Self‐Policing. Implications for the lasting roles and behaviours of public managers affected by this national change agenda are discussed, and conclusions for theory and practice are drawn.     

The Evolution and Continuing Challenges of E‐Governance

E‐governance comprises the use of information and communication technologies (ICTs) to support public services, government administration, democratic processes, and relationships among citizens, civil society, the private sector, and the state. Developed over more than two decades of technology innovation and policy response, the evolution of e‐governance is examined in terms of five interrelated objectives: a policy framework, enhanced public services, high‐quality and cost‐effective government operations, citizen engagement in democratic processes, and administrative and institutional reform. This summary assessment of e‐governance in U.S. states and local governments shows that the greatest investment and progress have been made in enhanced public services and improved government operations. Policy development has moved forward on several fronts, but new policy issues continually add to an increasingly complex set of concerns. The least progress appears to have occurred in enhancing democracy and exploring the implications of e‐governance for administrative and institutional reform. ICT‐enabled governance will continue to evolve for the foreseeable future providing a dynamic environment for ongoing learning and action.     

Legislating deliberative engagement: Is local government in Victoria willing and able?

Growing dissatisfaction with representative democracy and concomitantly, the increasing expectation that citizens assert more influence over public policy have seen the emergence of more participatory and deliberative forms of governance in public management practice. This article explores the attempt of the state government of Victoria, Australia to legislate for mandatory deliberative engagement as part of its local government strategic planning instruments. The ambition of the reform was significant; however, it was almost unanimously rejected by the local government sector. Based on analysis of the key themes that emerged from the submissions made during the 3-year Victorian Local Government Act Review process, we explore the limitations and barriers to implementing deliberative engagement practice at a local government level. We demonstrate that whilst the promise of participatory democracy might have been compelling, in the case of Victoria there were a series of contextual and capacity considerations that needed to be taken into account before the implementation of such reforms were pursued.     

An Analysis of the Joint Board or County Model as the Structural Basis for Effective Australian Local Governance

Australian policy‐makers continue to rely on municipal amalgamation as the main engine of structural reform in local government, despite strong evidence that it diminishes participation and representation without improving service efficiency. Several promising, but neglected alternative models of structural reform have been developed, including ad hoc resource sharing models, Regional Organisations of Councils, virtual local government, and agency models. In an encouraging response to the recent policy of enforced council amalgamations in NSW, the Shires Association of NSW (2004) has recently proposed a ‘Joint Board model’ of local governance and invited comment on this model. This article takes up this challenge and seeks to place the Joint Board model in conceptual context and evaluate its characteristics and simulated cost savings.     

Levelling Up the UK: If not the Conservatives,will Labour Learn the Lessons from Past Policy Failings?

This article considers the levelling-up agenda in the UK, examining the Johnson government's original proposals to tackle regional and local inequality and its continuation under new Prime Minister Rishi Sunak following the short-lived premiership of Liz Truss. The 2022 Levelling Up in the United Kingdom White Paper is notable for the frank and wholesale critique it provides of previous governments’—both Tory and Labour—efforts to address the pressing issue of geographic inequality. The assessment was that a pattern of ad hoc and incoherent reforms needed to be replaced by a stable, long term and system-wide approach to change. Yet, under Johnson, Truss and now Sunak, policy churn is continuing, with an approach that falls short in following the lessons set out in the White Paper. We provide a detailed analysis of the government's critique of past reforms, the lessons it has set out and why its reform programme is likely to repeat past failings. Crucially, the approach leaves the structure of central government almost untouched, with substantive reforms instead focussed at the local governance level. We argue the government's programme perpetuates the ‘power-hoarding’ tendencies of the Westminster model, a key bulwark against meaningfully addressing the UK's spatial inequality problem. We conclude that the levelling-up agenda, missions and targets are unlikely to be met under Rishi Sunak, reflecting the endemic nature of short-termism and centralisation of power in the UK's public policy approach. We then consider the approach of Starmer's Labour Party to levelling up and the issues it needs to confront if it forms the next government.     

THE IMPACT of FINANCIAL SERVICES GLOBALIZATION UPON the CARIBBEAN COMMON MARKET

This article tests three hypotheses concerning the policy effects of foreign exchange market liberalization and exchange controls in the three Caribbean Common Market countries of Jamaica, Trinidad & Tobago, and Barbados during the 1990s. It concludes that these cases do not show either monetary or fiscal policy to be particularly effective, when foreign exchange markets are liberalized before a functional bank regulatory system is put in place. These cases also imply that given the challenges posed by financial services globalization, the need for informed judgment by governments regarding the pace and scope of financial sector liberalization will remain critical, particularly within small developing countries.     

Digital Government: A Primer and Professional Perspectives

Digital technology is a critical enabler of public administration reforms. It can improve the efficiency and productivity of government agencies and allow citizens to transact with government anytime, anywhere. It can also deepen the democratic process, empowering citizens to participate in policy formulation. In this article Andrew Botros, the director of Expressive Engineering, and Maria Katsonis, from the Department of Premier and Cabinet (Victoria), explore the challenges of the digital world for the public sector. Katsonis presents a primer on digital government tracing its evolution from the e‐government movement of the 1990s to Government 2.0 in the 2000s to today's digital‐by‐default agenda. As technology and its role in public sector reform have progressed, so too have the governance, cultural, and leadership challenges deepened. Botros examines NSW approach to open innovation with the Premier's Innovation Initiative in NSW, the state's open data experience, and Transport for NSW and its management of public transport data. He argues NSW's approach involves a significant innovation trade‐off, requiring fresh thinking in digital‐era collaboration.     

Governance through civil society? An Anglo-Italian comparison of democratic renewal and local regeneration

Abstract

The UK has become a prime case for the implementation of the ‘new governance’ of partnership between central government and civil society. This perspective has become central to New Labour policies for both local socio-economic regeneration and democratic renewal in the United Kingdom. However, limitations in its redistribution of power, its transparency in the policy-making process, including the representativeness of civil society participants, and, in the effectiveness of its outcomes have all been alleged by academic critics. These issues are explored by contrasting a robust, British case of local, participatory governance in Bristol with a quite different, and more conventional approach to democratic renewal in the Italian city of Naples. Despite similar problems of socio-economic dereliction and similar schemes of regeneration in the two cases, the Italian approach emphasized the exclusive role of a renewed constitutional democracy, while in Bristol central government agencies promoted an accentuation of local trends to participation by local civil society organizations. Applying an analytical framework composed of national policies and regulations, institutional rules and norms, and the collective ‘identity’ factors identified by social capital theory, governance changes are here treated as ‘exogenous shocks’ and/or as opportunities for choice. However, over and above differences in these institutional frameworks the key factors are shown to be the longer-standing political cultures influencing local actors and their own repertoires of action; with repertoires influenced by objective validations of previous policy choices, or economic or electoral successes. The study finds that the achievements of the ‘inclusive’, participative governance approach do not significantly exceed those of an exclusivist, ‘neo-constitutionalism’, as practised by a more autonomous local government in Naples. Thus, on this evidence, enhanced civil society engagement still requires greater freedom from central government direction.     

Collaborative Governance in the Reform of Western Australia's Alcohol and Other Drug Sector

Collaborative governance involves processes and structures for policy development and decision making with particular relevance for health and social services. We examined collaborative governance in the reform of Western Australia's alcohol and other drug sector, applying Emerson et al.'s (2012) integrative framework. A documentary review and group interviews with government, sector, and consumer representatives were involved. Contextual factors included increased service funding, and the development of a partnership approach. Drivers for collaboration involved leadership and financial incentives for policy implementation. Key stakeholders across government and the sector reported a mutually supportive and constructive relationship and increased capacity, and they shared an agenda for change. The integrative framework was a useful structure for the explication of collaborative governance, although financial arrangements were not addressed.     

State and Local Governance Fifteen Years Later: Enduring and New Challenges

This article draws on the contributions to this issue and related evidence to assay the extent to which the states and larger local governments have moved in directions endorsed by the Winter Commission in 1993 . The commission’s recommendations targeted (1) the political context of state and local governance, with a particular focus on executive leadership, campaign finance reform, and citizen engagement; (2) the specifics of public administration, with primary emphasis on empowering managers through internal deregulation and bolstering human resource capacity; and (3) the nature of the relationship between the national government and the states in a key policy arena. Significant changes in the fabric of state and local governance have occurred in each of these three areas over the last 15 years. Many of these modifications are consonant with the thrust of the Winter Commission report, but the evidence also points to the limits of state and local reform. Further reform initiatives should be built on systematic efforts to advance knowledge concerning the origins, nature, and outcomes of the array of institutions and processes present at the state and local levels.     

Taking ‘Big Government Conservatism’ Seriously? The Bush Presidency Reconsidered

This article reflects on the ongoing debate about the ideological direction of the Bush presidency and what it means for the future of US conservatism in domestic policy. The paper considers the dual nature of US conservatism and then goes on to explore the 'conservative promise' of the 2000 presidential election and the debate over what critiques of the Bush administration have come to call 'big government conservatism'. Finally, the article studies two examples of how this alleged 'big government conservatism' has been manifested. First, the article contemplates the administration's fiscal policy. Second it looks at the 2003 reform of the Medicare system. We argue that, although these two cases provide some ground to the idea of 'big government conservatism', in the end this phenomenon does not add up to a coherent policy vision. Overall, beyond tax cuts, the Bush administration has failed to implement a bold conservative agenda.     

Devolution,Evolution, Revolution … Democracy? What's Really Happening to English Local Governance?

The Cities and Local Government Devolution Bill 2015–2016[HL] was introduced into the House of Lords as Bill No. 1 in the 2015–2016 parliamentary session. The Bill forms a critical element of the government's high‐profile policy of devolving powers and responsibilities to local areas within England. The transition from first‐generation ‘city deals’ to second‐generation ‘devolution deals’ within five years provides a sense of the pace and development of the reform agenda but there is also a strong sense that something is missing. ‘Missing’ in the sense of an understanding of the specific type of devolution on offer, ‘missing’ in the sense of how an explosion of bilateral new ‘deals’ will be offset against the obvious risks of fragmentation and complexity, and ‘missing’—most importantly—in relation to the democratic roots that might be put in place to counterbalance the economic thrust and make the reform agenda sustainable. It is in exactly this context that this article argues that the full potential of the current devolution agenda will only be realised when the Conservative government fulfils its September 2014 commitment to wider civic engagement about how England is governed.     

我国机关事务集中统一管理改革的理论与实践分析

改革开放以来,我国机关事务管理变革工作经历了初步探索、全面改革和深化改革三个时期。我国机关事务管理经不断改革已经取得很大进步,但仍面临管理职能分散化、部门利益分割化等碎片化困境,因此我们应树立机关事务整体性治理理念,构建跨部门协同的集中统一治理体系。调研湖北省、山西省、江西省等地机关事务集中统一管理实践发现,集中统一管理具有优势也面临诸多挑战。未来机关事务管理应增强保障与服务职能,打造服务型组织;提高管理与运营能力,打造高效型组织;健全监督与问责机制,打造责任型组织。     

Rebuilding public administration in the New German Länder: Transfer and differentiation

The rebuilding of public administration in the new German Länder can be described as a process of increasing differentiation. The new states share the common legacy of ‘democratic centralism’ and face similar reform challenges; but the analysis of the establishment of state administrations, local government reform and personnel policy reveals important differences amongst the states. West‐East institutional transfer plays a decisive role in creating effective institutions of governance in the East. However, it does not imply the imposition of a uniform West German ‘model'; rather, institutional transfer encourages administrative differentiation.     

Decentralization by default: Local governance and the view from the village in The Gambia

Policies to decentralize government activities in The Gambia have been on the agenda for more than a decade but no decisions have been taken. During this period the quality of government services to rural areas has declined dramatically. The linchpin of provincial administration, the divisional commissioner, has become redundant as far as development is concerned. The activities of line ministries have deteriorated as their expenditures have been reduced and they lack the funds to permit staff to operate at village level. Area councils that were previously regarded as wasteful are now totally discredited. Village development committees (VDCs) have been formed, but the results are mixed and often they are ineffective. By default, decentralization in the 1980s and early 1990s in The Gambia has been achieved by non-governmental organizations (NGOs), which have rapidly grown in number and significance. This article explores the perceptions of villagers in The Gambia about the various organizations that are meant to serve their needs. Its conclusion speculates on proposals to implement a new decentralization policy in the country and points to the need for aid agencies to adopt a less simplistic approach to the issue of local governance.     

Reassessing popular participation in Uganda

The 1980s saw the emergence of popular participation as a mechanism for promoting good governance in developing countries Good governance was seen as crucial to efforts to improve the welfare of poor people in countries where elites had hitherto benefited disproportionately from policies conceived at the top without reference to ordinary citizens at the bottom. Donor pressure helped accelerate the change. In Uganda these developments coincided with the rise to power of a government that sought to democratise the country's politics. A major plank in the democratisation agenda was the establishment of a participatory system of local administration in which ordinary citizens, facilitated by local councils, would participate in public affairs and influence the way government functioned. These aspirations coincided with those of the donor community and enthusiasts of popular participation. This article is an account of the evolution of village councils and popular participation from 1986, when the National Resistance Movement came to power in Uganda, to 1996. It shows that while at the beginning the introduction of local councils seized the public's imagination leading to high levels of participation, with time, public meetings as consultative fora succumbed to atrophy due to participation fatigue and unwarranted assumptions about the feasibility and utility of popular participation as an administrative and policy‐making devise. It calls for political history and the socio‐cultural context to be taken into account in efforts to promote participation. Copyright © 2004 John Wiley & Sons, Ltd.     

When top‐down meets bottom‐up: Local adoption of social policy reform in China

Authoritarian local leaders face two driving forces in social policymaking: top‐down pressure from the regime and bottom‐up motivations derived from local conditions. Existing studies recognize the importance of both forces, but remain unclear as to how they interact and which of them is more influential in driving local policy adoption. Focusing on two health insurance integration policies in China, we find that when the policy entails substantial class or distributive conflicts and bureaucratic friction, top‐down pressure for compliance is a dominant driver for local policy adoption; when the policy does not entail such conflicts or bureaucratic infighting, bottom‐up motivations based on local economic geography together with top‐down pressure drive local adoption. We find support for this argument from an analysis of an original city‐level data set in China from 2004 to 2016. This study has implications for social policy reform, decentralization, and government responsiveness in authoritarian countries with multilevel governance.     

Local Government Innovation and Revealed Ideas of Political Legitimacy: a Comparative Study between the United States and China

This study constructs a typology of innovation from the winning nominations of local government innovation award programs in the US and China, two countries with histories of subnational policy innovation, to reveal what types of policy initiatives local officials believe will improve governance in each country. I argue that improving governance is important as it serves as a main source of modern political legitimacy, regardless of regime type. To analyze if ideas of good governance differ by regime type, I classify local government innovation into six thematic areas, and then examine how each of these are expected to improve governance and thus contribute to political legitimacy. In China, I find that the predominant local innovations are in the area of governance and management, which demonstrate that government officials believe that reforming the democratic governance process will solve governance problems and enhance political legitimacy. In the United States, however, economic, social, cultural, and environmental areas occupied a larger proportion of government innovation, illustrating that local officials pay more attention to enhancing political legitimacy through improving the performance and quality of government services. This analysis shows that ideas of good governance, as revealed by local government innovation awards, differ across these two regime types. Although government officials in both regimes desire improved governance as a way to enhance political legitimacy, what that means in each country differs.     

Another lost decade? The future of reform in Latin America

The 1990s ended equivocally in Latin America. What has gone wrong? Is economic failure the cause or the consequence of the democratic decay and the erosion of governance throughout the region? The review essay revisits the debate on the intricate links between politics and economics in the second stage of reform. Moving beyond standard typologies of regime type, it explores the interactions between the quality of democratic governance and the performance of economic policy under democratic auspices, in particular its credibility. It is now amply recognized that reforms have been hindered by inefficient unreliable and unaccountable government institutions. Furthermore, the manner in which market reforms have been implemented has undermined governance and accountability. The importance of policy credibility has essentially been neglected as a pivotal condition for effective economic reform. Consequently, policymakers propose a new round of reforms, centring on strengthening the institutions of governance and modifying the incentives shaping public policy. The essay argues that restoring the credibility of policy requires a fundamental redefinition of the state and reforming the methods of government and the styles of policymaking. The defining challenge of Latin American countries is to strengthen capacity to adequately implement policy and credibly commit to policy reform. Copyright © 2003 John Wiley & Sons, Ltd.     

The administration of development in emergent nations. The problems in the Caribbean

The conduct of development administration in Commonwealth Caribbean countries is hindered by weaknesses in government, and, on the basis of many years experience, Dr. Hope points to four approaches to reform which are currently favoured. Changing the nature of political leadership; reasserting the importance of an independent instrumental administration through greater attention to manpower planning, training and staff development; similarly extending the scope of administrative action by achieving a decentralization of authority from political ministers to local professional administators acting with the public; and participatory democracy with a reduced role for professional administration are four approaches with parallels in other parts of the world. The author points, however, to distinctive features in the Caribbean and argues that the small size of the states creates particular problems and challenges.