Representing the People? Testing Assumptions about Local Government Reform

The publication of a new report from the Audit Commission, coupled with the Labour government's declared intention to modernize local authority decision making, marks the return to the policy agenda of long-familiar questions. This paper tests some of the assumptions underlying the reform programme against recent research evidence. Moves to improve effectiveness through establishing a 'cabinet' system, or delegation to officers or 'lead' councillors are considered in the light of councillors' own preferences and practices. The ways in which councillors spend their time and their perceptions of the appropriateness of its distribution between activities is explored. The paper then examines the extent to which authorities have chosen to experiment with and adapt their own structures, and considers whether central imposition of radical change is either necessary or advisable.     

FRAMING AND COUNTER‐FRAMING NEW PUBLIC MANAGEMENT: THE CASE OF GERMANY

In this paper I explore the conflict between managerial and bureaucratic models of public sector management from the discursive perspective in institutional theory. Taking the under‐researched case of Germany, I conduct a textual analysis of seminal publications in the discourse on public sector reform and reveal the subversive framing conflict which accompanies the proliferation of private managerial models in the public sector. As the most general result, a frame which advocates the transfer of business‐like managerial practices clashes with a counter‐frame which opposes this managerialization. I elucidate how these competing frames are composed, which of their components are core and which are peripheral, how the frames relate to each other, and which broader discourses they exploit for legitimization purposes. The results imply that the often assumed superiority of managerial over bureaucratic control is constructed through discourse rather than being a law‐like regularity.     

From Corporate Governance to Local Governance: Stakeholder‐Driven Community Score‐Cards for UK Local Agencies?

Abstract

This paper compares the methodology of the “comprehensive performance assessment”, recently proposed by the Audit Commission for all UK local authorities, with the “community score‐card” approach which has been used in the United States of America for a number of years. It suggests that the Audit Commission approach should be altered to take on board some of the more imaginative aspects of the community score‐card, particularly in relation to the inclusion of those quality of life measures, which local people regard as important, and measures of the quality of local governance.     

Talking Cop: Discourses of Change and Policing Identities

This paper presents empirical and theoretical analysis of the enactment of New Public Management (NPM) within the UK police service. It draws on empirical material gathered in a two-year study that explores the ways in which individual policing professionals have responded to, and received, the NPM discourse. Theoretically informed by a discursive approach to organizational analysis, the paper focuses on the new subject positions promoted within NPM that serve to challenge traditional understandings of policing organization and identities. The paper examines the implications of this for policies that promote community orientated policing (COP) and increased inter-agency partnership. The paper argues that the promotion of a more progressive form of policing, based on community orientation and equality principles, may struggle to gain legitimacy within the current performance regime that legitimizes a competitive masculine subjectivity, with its emphasis on crime fighting.     

ISRAEL'S AUDITOR AS POLICY-MAKER

Supreme audit institutions claim to avoid directly criticizing government policy. However, their assertions do not reflect reality. Israel's State Comptroller is explicit in criticizing government policy, and suggesting other policies in their place. The US General Accounting Office, the UK National Audit Office, and the Philippines Commission on Audit also criticize policy, but with styles that are more subtle and indirect than the Israeli auditor's. A review of the responses to Israel's audit reports reveals the extent of policy influence and the constraints that limit the auditor's role as a policy-maker.     

Discursive construction of Lithuania’s “others:” the case of Belarus

This article analyzes discursive representations of Lithuania and of Belarus as Lithuania’s “Other” in the context of the recent political crisis in Ukraine. Focusing on the media discourse of Lithuanian intellectuals regarding the historical Grand Duchy of Lithuania (GDL) and its legacy, it examines how Belarus and its role vis-à-vis Lithuania have been depicted. The analysis is informed by the discourse-historical approach within critical discourse analysis, using thematic content and argumentation schemes for studying the images ascribed to the GDL, Belarus, and Lithuania in the selected texts. Focus in the discourse of intellectuals on the GDL as a historical homeland is found to shift from history as a scholarly endeavor to the politics of history and the uses of the past in today’s political projects. Belarus and the GDL emerge as topics not only historically and politically salient but also potentially dangerous for Lithuania within the setting of the events in Ukraine.     

“Socialist in content,national in form:” the making of Soviet national art and the case of Buryatia

This article examines the fine art of the Soviet national republics and its discourse in the Soviet Union, which were considerably shaped under the influence of socialist realism and Soviet nationality policy. While examining the central categories of Soviet artistic discourse such as the “national form,” “national distinctness,” and “tradition,” as well as cultural and scientific institutions responsible for the image of art of non-Russian nationalities, the author reveals the existence of a number of colonial features and discursive and institutional practices that foster a cultural divide between Russian and non-Russian culture and contribute to the marginalization of art. Special attention is paid to the implications of this discursive shaping for the local artistic scene in Buryatia.     

Mémoire de la violence: du Congo des rébellions au Zaïre des pillages

The author looks into the chain of political violence, as well as into political discourse about past violence, experienced by ordinary Congolese from Independence up to the present. According to him, every major outburst of political violence underwent a discursive recuperation by Congolese/Zairian politicians and produced its own social memory. The Zairian state political culture of violence, blended with people’s experience of every day violence (economic and social), explains the generalisation of violence during the 1990s civil wars and lootings of all major and medium-sized cities.     

Governance,Representation and International Aid

The growth of the postwar 20th century international aid architecture has generated much debate over the successes and failures of aid, its changing forms and its challenges. This article uses this aid landscape to explore the representational or discursive power and authority of the aid donor over the aid recipient. It suggests that representations about what aid does, its modalities and dispensations reproduce a hegemonic discourse and that representational authority in diagnosing aid’s problems and prescribing solutions resides generally on one side of the aid binary. It thus focuses on the hierarchical or asymmetric relations of power implied by such a binary, on the way development aid in particular has come to shape self-understandings of donors in relation to recipients, and on the discursive labour that enables such a construction. It also explores how the post-Washington consensus on poverty eradication has embedded neoliberal solutions to development. The reproduction of the hegemonic aid discourse is examined in reference to NGOs involved in the dispensing of aid in Southeast Asia by drawing on scholarly literature and field research in Southeast Asia and Washington DC.     

The rise of an anti-politics machinery: peace,civil society and the focus on results in Myanmar

‘Results’, ‘value for money’, ‘effectiveness’ and similar buzzwords have become commonplace in development cooperation and peace building. The use of technical instruments such as project cycle management and evaluations is hardly questioned anymore: these are presented as a minor shift of focus to make current practice more effective. This paper argues that there is far more to this shift: a machinery of practices and institutions has been installed that removes political questions on development or peace from the political realm and places them under the rule of technical experts. Drawing on a Foucauldian understanding of discourse analysis, the paper analyses how this machinery prioritises gradual reform, subjugates other approaches to societal change and reproduces power/knowledge networks in both the global South and North. Based on ethnographic field research in Myanmar, it also explores discursive strategies of local actors and assesses how they are aiming to create spaces to challenge this machinery.     

The Discursive Resistance to EU-Enticement: The Russian Elite and (the Lack of) Europeanisation

This article explores the discourse of the Russian elite on foreign policy in general and on the European Union in particular, and identifies the main reasons for Russia's resistance to Europeanisation. At a theoretical level, the article builds upon the study of discourse conceived in ‘structural’ terms, and argues that discursive incompatibility at a deeper discursive level prevents the socialisation of elite members to attitudes more sympathetic to Europe at a more superficial level. Methodologically, the research is based on content analysis of major Russian foreign policy documents, presidential speeches and, in particular, of a set of interviews with Russian foreign policy-makers and academics most frequently in touch with the European Union.     

From CNOOC to Huawei: securitization,the China threat,and critical infrastructure

ABSTRACT

This article uses critical discourse analysis to examine how China has been constructed as an existential threat by the United States. Specifically, it explores how US reactions to the China National Offshore Oil Corporation (CNOOC) in 2005 created precedent for similar reactions to Huawei a decade later. It uses these case studies to demonstrate how the interplay between the China threat and security discourses of critical infrastructure has worked to successfully securitize China within broader American discourse. These examinations demonstrate a deliberate and protracted securitization of China by US elites, and they support more critical approaches to securitization theory that emphasize cumulative and incremental aspects over a securitized/de-securitized binary. Discourse analysis of key texts allows the reader to uncover how security issues are socially constructed, and discursive examinations of CNOOC and Huawei illustrate how concerns about national security are now employed in everyday American political discourse so that the China Threat Discourse has become the primary reading of China by US observers.     

Implementing Reforms in Bolivia: Too Much to Handle?

Abstract

This article looks at the implementation of budgeting and financial management reforms in Bolivia. These reforms were intended to facilitate the introduction of an integrated approach to budgeting and financial management, and a results-orientation in management. Evidence suggests that, at least in its first few years, there was little successful reform implementation. The main factors seen to impact reform implementation include the entrenched patronage of the political system, the weak nature of reform incentives, weaknesses in central financial management systems and processes, poor internal monitoring, authority limits in the Audit Office, a lack of Parliament scrutiny, questions about transparency and participation, and relational complexities arising from donor involvement.     

CENTRAL REGULATION OF ENGLISH LOCAL AUTHORITIES: AN EXAMPLE OF META‐GOVERNANCE?

This paper discusses how the UK government has reconfigured its regulation of English local authorities by moving from direct oversight to using an indirect independent agency as a vehicle of meta‐governance. This theme is discussed through two strands: first, by examining how several factors eroded central government’s capacity to directly regulate councils. The second strand examines the strategies used by the Audit Commission, an independent agency, to assert its authority over councils and how its hegemony is sustained by facilitating and participating in horizontal and vertical networks across government, specialist policy and stakeholders’ communities.     

The Audit Commission: guiding, steering and regulating local government

How does the non‐executant state ensure that its agents are fulfilling their obligations to deliver nationally determined policies? In the case of elected local government in England and Wales, this function is carried out by the Audit Commission (AC) for Local Authorities and the Health Service for England and Wales. Since being established in 1983, it is the means by which local authorities are held to account by central government, both for its own purposes and on behalf of other interested stakeholders. Although the primary function of the AC is to ensure that local authorities are fulfilling their obligations, it does so by using different methods. By acting as a regulator, an independent expert, an opinion former and a mediator, the AC steers local authorities to ensure that they are compliant with the regulatory regime and are implementing legislation properly.     

The global,the local and the hybrid in the making of Johannesburg as a world class African city

In 2000 the city of Johannesburg adopted the vision of becoming a World Class African City (WCAC). Since then Johannesburg has been energetically promoted in accordance with this vision. The tagline ‘world-class African city’ is now used in the branding of the city. It has become a major signifier on its logo and a notable catchphrase in its radio adverts of its brand. However, the nested opposition of the ‘world-class’ and ‘African’ discourse has not been explicitly defined in the vision beyond their simplistic connection. Many people have found the vision puzzling and some have questioned its claims. This paper explores the conundrum that lies in the nested opposition of the ‘world-class’ and ‘African’ discursive currents. It identifies the ‘global’ and ‘local’ discursive forces (in the country) which were formative in the creation of the vision. It looks at how the intersection of global and African discursive fronts has become leverage for generating hybrid cultural/cosmopolitan identities. The thrust of the paper is that the urban practices and landscapes of post-apartheid Johannesburg are enacted and re-enacted together with the inspiration, signification and/or representation of the city vision.     

Whose feminism counts? Gender(ed) knowledge and professionalisation in development

Gender and development (GAD) has become a transnational discourse and has, as a result, generated its own elite elements. This elitism has tended to be attributed to a Northern hegemony in how feminism has been articulated and then subsequently professionalised and bureaucratised. What has received less attention, and what this paper highlights empirically, is how Southern-based feminisms might themselves be sites of discursive exclusion. The paper interrogates these concerns through an analysis of how professionalisation is evidenced in feminist engagement among civil society organisations working on gender in New Delhi. The analysis suggests that efforts to create spaces for subaltern voices are constrained not only by the disciplining effects of neoliberal frameworks but also – and in tandem – by Southern elite feminist priorities. The implications of these findings are significant: processes of professionalisation and the elitism they engender may have the effect of potentially precluding the engagement of those people on the margins whose voices are so sought after as part of efforts to facilitate inclusive development.     

Ideas,interests and practical authority in reform politics: decentralization reform in South Korea in the 2000s

This paper explains the reason why the hitherto statist country, Korea, has carried out significant decentralization since the 2000s. In explaining the motivation for decentralization, extant literature has focused on the role of parties, bureaucratic politics, democratization, or territorial interests. Yet there is still limited explanation of how the decentralization laws in Korea could be successfully passed in the 2000s, while cental stakeholders still persisted. By tracing the process of decentralization reform in the 2000s, this article demonstrates how structural factors created favourable circumstances and discursive background for institutional change, and how the idea of decentralization, through the idea diffusion mechanism, gave directions for central decision makers to produce a specific path of reform strategies. It also pays attention to the formation of ‘practical authority’ for reform politicians that made it possible to overcome obdurate resistance from central bureaucrats and politicians.     

Reform: the audit system

This study discusses the reform of the Italian audit system initiated by law in 1990 and subsequently regulated by the Executive branch through delegation from Parliament. Despite the redundancy of the regulations, the new system appears to be coherent with the wider design of public administration reform. Audit is no longer limited to preventing illegal acts issued by public administrations, but it is also directed to detect anomalies and inconsistencies of public management and propose corrections to improve performance. The real challenge of the reform lays in its implementation.     

EUROPEAN COMMISSION OVERLOAD AND THE PATHOLOGY OF MANAGEMENT REFORM: GARBAGE CANS,RATIONALITY AND RISK AVERSION

Prior to the EU resignation crisis (the fall of the Santer Commission in 1999), it had long been argued that the European Commission was suffering from managerial ‘overload’. The incoming Prodi Commission embarked on a programme of administrative and managerial reform under the leadership of Commission Vice President, Neil Kinnock. Central to this programme were the objectives of improving managerial capacities and bolstering legitimacy in order that the Commission would be better able to discharge its expanded responsibilities. Using the model of governmental overload developed in the 1970s and 1980s, this article quantifies the impact of the reforms and argues that the overload problem has been aggravated rather than diminished. In this context, the rationale of the reform project is explored with reference to theories of public policy decision making.