Measuring New Public Management and Governance in Political Debate

New Public Management (NPM) recently has been compared and contrasted with public governance (PG) to illustrate shifts in conceptions of public administrations and in reform agendas. The authors develop measures to capture the relevance of NPM and PG in textual discourse and investigate the extent to which they have entered the political debate. Content analysis of electoral programs for the 2005 Italian regional elections reveals that even in this legalistic country, considerable attention was paid to both NPM and PG issues. An important explanatory variable in preference for NPM or PG is party ideology, highlighting often‐ignored within‐country dynamics. Furthermore, the authors show how a methodological approach adapted from mainly political science and business research can be exploited in the field of public administration.     

Reforming Social Services in Hong Kong: The Role of Contracting and Performance Management in the Non‐Profit Sector

Contracts and performance management, along with the concept of consumerism, have become the fundamental metaphors for New Public Management (NPM) and key changes in the public service. ‘Doing well while doing good’ and finding generally acceptable accountability measures for social services have become the perennial aspirations of planners, service providers and funders. This article examines the contingent factors and rationales behind the quality movement and recontracting exercise in reforming the delivery of personal social service programs in Hong Kong within the framework of New Public Management (NPM). It explains the use of long‐term relational contracts rather than the standard business contracts between the government as funder and non‐profit organisations as service providers. It also deals with the complex relationships among quality issues, quality standards, consumerism, accountability, performance indicators, and performance management.     

A different lens: administrative perspectives on portability in Illinois' Housing Choice Voucher Program

Over the last decade, the Housing Choice Voucher Program has grown to become the USA's primary strategy for providing safe, decent, and affordable housing. Annually serving more than 2 million low-income households, the program is designed to help low-income households afford private market rental housing. The program also allows for the “portability” of vouchers nationally between housing authority jurisdictions. Both features aim to mitigate the effects of concentrated poverty. Research on the Moving to Opportunity Program and the Gautreaux consent decree have produced data confirming that residential mobility can at times lead to positive opportunities for assisted households. This past research has been conducted on specific programs occurring outside of the general Housing Choice Voucher Program framework and has focused on household-level outcomes, paying little attention to the ways in which program administration may affect outcomes for voucher households. This article aims to understand voucher portability from the perspective of housing authority executive directors and program administrators, in order to better understand how program administration impacts the types of household outcomes observed in prior research. The results reveal that housing authority administrative practices and inter-housing authority relationships play a significant role in shaping the types of outcomes realized by porting voucher households. These findings suggest several changes to program administrative design and policy that may improve support for voucher households as they make portability moves.     

Preservation policies in perspective

Abstract

This paper looks at the housing stock serving low‐income households and provides recommendations for future analysis and action. It concludes that too little attention is being paid to preserving the stock of unassisted units affordable by very low‐income families. This stock has shrunk in recent years, while the number of poverty‐level families has increased. Several recommendations for action by local governments are enumerated. Moreover, while much attention is focused on preserving projects developed under early federal assistance programs, policies for preserving units developed under the Section 8 program are needed to preserve owners’ incentives for maintaining these projects. Additionally, preservation issues must be considered in designing any new production programs. The paper outlines one option for a new program with a radically simplified financing structure.     

ISTEA and the Role of MPOs in the New Transportation Environment: A Midterm Assessment

This article undertakes a modest midterm assessment of MetropolitanPlanning Organizations (MPOs) under the Intermodal Surface TransportationEfficiency Act of 1991 (ISTEA). The focus is on the role ofthe MPO, emphasizing its intergovernmental context. Two major sources of primary data are used: (])a national surveyof MPOs, completed in March 1994, and (2) an ACIR study of eighteenMPOs in twelve U.S. regions. The article addresses decentralization of transportation policyto regional MPOs, local policymaking and decision authority,intergovernmental issues under ISTEA, and what lies ahead forMPOs. The article concludes that ISTEA has brought a great dealof change to MPOs. The data suggest that ISTEA is having somesuccess: decentralization is taking place; more stakeholdersare getting involved; public involvement programs are becomingmore common; and greater attention is being given to air quality,intermodal issues, long-range planning, and intergovernmentalcoordination. However, most MPOs are encountering difficulties in implementingISTEA. They do not know how to do many of the new tasks assignedto them, and the intergovernmental links that ISTEA dependson are not yet forged solidly.     

How important is information format? An experimental study of home energy audit programs

Among alternative regulatory responses, information provision programs are receiving increasing attention despite the decidedly mixed evidence about their effectiveness. This paper provides detailed experimental evidence to demonstrate that for one important example of an information program, the use of energy audits to stimulate residential energy conservation, the effectiveness of the program is highly sensitive to the information processing behavior of the users of the information. Simple changes in the format of the information provided to homeowners produced marked improvements in the efficiency of consumer choices. The study illustrates Stern's conclusion in a recent issue of this journal that laboratory experimentation provides a useful alternative to model-based analysis of natural experiments, especially for policy design issues involving information acquisition and processing. The paper also offers conclusions about improving the effectiveness of home energy audits, as well as the entire class of information provision programs.     

Congressional Attention and Opportunity Structures: The Select Energy Independence and Global Warming Committee

This article examines the role that overlapping committee jurisdictions play in fostering or hindering attention to environmental and energy issues in the U.S. Congress. The Select Energy Independence and Global Warming Committee, created by House Democrats in 2007 , and its chairman Rep. Ed Markey took advantage of opportunities within the existing jurisdictional arrangement to increase attention to these issues despite lacking any legislative authority. Data from the 110th and 111th Congresses show that the Select Committee held more hearings on climate change and alternative energy, and on environmental and energy policy generally, than any other committee. The committee also increased the range of sources informing debate on these issues by calling different witnesses than other committees. These findings have important implications for the relationship between institutional structure and agendas and for Congress' policy‐making role on energy and the environment.     

Three Lenses of Evidence‐Based Policy

This article discusses recent trends to incorporate the results of systematic research (or ‘evidence’) into policy development, program evaluation and program improvement. This process is consistent with the New Public Management (NPM) emphasis on efficiency and effectiveness. Analysis of evidence helps to answer the questions ‘what works? and ‘what happens if we change these settings?’ Secondly, some of the well known challenges and limitations for ‘evidence‐based’ policy are outlined. Policy decisions emerge from politics, judgement and debate, rather than being deduced from empirical analysis. Policy debate and analysis involves an interplay between facts, norms and desired actions, in which ‘evidence’ is diverse and contestable. Thirdly, the article outlines a distinction between technical and negotiated approaches to problem‐solving. The latter is a prominent feature of policy domains rich in ‘network’ approaches, partnering and community engagement. Networks and partnerships bring to the negotiation table a diversity of stakeholder ‘evidence’, ie, relevant information, interpretations and priorities. Finally, it is suggested that three types of evidence/perspective are especially relevant in the modern era – systematic (‘scientific’) research, program management experience (‘practice’), and political judgement. What works for program clients is intrinsically connected to what works for managers and for political leaders. Thus, the practical craft of policy development and adjustment involves ‘weaving’ strands of information and values as seen through the lens of these three key stakeholder groups. There is not one evidence‐base but several bases. These disparate bodies of knowledge become multiple sets of evidence that inform and influence policy rather than determine it.     

Community legal centres in Australia under a new public management regime

During the 1990s and into the new millennium the public sector in Australia has gone through a process of so-called modernisation. This has been underpinned by the New Public Management (NPM), and the financial, regulatory and administrative reforms it encompasses. An assumption that the public and private sectors are not inherently dissimilar, and can therefore be managed in much the same way including having their efficiency and effectiveness measured against the same performance criteria, is central to the NPM. This article examines the role of comunity legal centres (CLCs) in Australian society against the background of adoption by all governments in Australia of an NPM policy agenda. It then goes on to discuss the implications of this agenda for the viability of CLCs and their relationship with government and clients. The article will also consider the implications for relationships between government and citizenry.     

Relationship between the retirement, disability, and unemployment insurance programs: the U.S. experience

This article was prepared initially for an international conference of social security program administrators and researchers. They examined the reasons for, and implications of, a recent trend in several European countries toward making it easier to qualify for retirement or disability benefits as a way of alleviating long-term unemployment. The article notes that the United States has not followed this trend. Instead, this country has continued to use temporary extensions of unemployment insurance benefits as a way to help the long-term unemployed during recessionary periods. Since the mid-1970's, the emphasis in retirement and disability insurance programs has been to strengthen the financial integrity of these programs rather than to expand eligibility. Described here are the progression of extended benefit provisions of unemployment insurance through the most recent recession, the historical development of early retirement features in the social security program, and the more recent attention that has been paid to the financing issues that have played a central role in legislation during the late 1970's and early 1980's. Unemployment experience and trends toward early retirement are examined, along with the role of public and private employee pension plans that supplement social security retirement benefits. Preliminary data from the Social Security Administration's New Beneficiary Survey show the prevalence of such pension coverage for recent retirees and the extent to which these pension benefits were claimed before normal retirement age.     

The contribution of international accounting standards to implementing NPM in developing and developed countries

In recent years, numerous countries have undertaken administrative reforms to implement New Public Management (NPM) postulates. The implementation of NPM involves new information needs for decision taking by public managers. In this context, public sector accounting plays a key role as an information system for the successful implementation of NPM. The International Federation of Accountants (IFAC) is undertaking an international accounting harmonisation project to establish high‐quality public sector standards to meet the new information requirements under NPM worldwide. This article examines the capability of IFAC accounting measurement bases to meet information needs under NPM postulates, in both developing and developed countries, analysing the differences between these types of countries. The National Accounting Standard Setters (NASS) of 47 countries were asked about the usefulness and viability of Fair Value Accounting (FVA) to implement NPM postulates, especially those concerning improved efficiency, enhanced information transparency and benchmarking analysis. Copyright © 2007 John Wiley & Sons, Ltd.     

WOLF'S MODEL: Government Failure and Public Sector Reform in Advanced Industrial Democracies

Many developed nations have embarked on public sector reform programs based on the New Public Management (NPM) paradigm. This article seeks to evaluate the efficacy of NPM reform strategies as a means of dealing with the problem of “government failure” in public sector hierarchies by examining these strategies through the analytical prism provided by Wolf's theory of nonmarket failure. Drawing on the New Zealand experience, we explore the potential for NPM reform initiatives to mitigate the problems of nonmarket supply. Moreover, we examine how “autonomous policy leadership” and “advocacy coalition networks” can overcome the various obstacles to the successful implementation of reform strategies delineated by Wolf under his “conditions of nonmarket demand”. The article then focusses on the efficacy of NPM in removing, or at least reducing, the various forms of government failure identified in Wolf's taxonomic catalogue of nonmarket failure. We conclude by assessing some of the likely tradeoffs involved in the application of NPM reform programs.     

Program Accountability as an Emergent Property: The Role of Stakeholders in a Program's Field

This article applies the concepts of organization field and accountability environment to a government-funded program. It argues that the formula for accountability inspired by agency theory—define performance standards, measure performance, and sanction based on measured performance—is frequently impossible to apply because program accountability can be an emergent property arising from the actions of the major actors in a program's field. Studying a program reform of social service transportation in Kentucky, it illustrates the utility of conceptualizing accountability as an emergent property of the program's field. After the principle actors in this program field—the transportation broker, the state, the transportation provider (such as a taxi company), and the riders—established their roles, there was a decline in program cost per rider and a reduction in waste and fraud. The article concludes with implications for designing more accountable programs.     

Case-wise policy information systems: redefining poverty

Problem definition and program adaptation are difficult tasks in policy analysis. In the analysis of social welfare policy, for example, there are tendencies (1) to ignore many of the factors necessary to distinguish the truly needy, resulting in the misdirection of resources; (2) to focus on individual programs, resulting in unintended consequences arising from program interactions; and (3) to overlook evolutionary changes in the target populations, resulting in obsolete programs. Conventional techniques that simplify data by variables exacerbate these and related problems of analysis. Unconventional techniques that simplify by cases might help resolve them. This paper develops the rationale for case-wise policy information systems, using the measurement and definition of poverty as an example.     

POLICY AS A MOVING TARGET: A CALL FOR CONCEPTUAL REALISM

Since the early 1970s, policy scholars have paid great attention to issues of policy implementation, treating it as the "missing link" between policy formulation and results. Most often, policy problems have been seen as static phenomena that can be corrected by carefully specified programs. This paper, drawing upon examples from Swedish energy policy, argues that this is not the case, that political and social conditions are so prone to change that implementation must be a dynamic process if it is to be effective. This has distinct conceptual and practical implications for the study and design of policy implementation.     

The U.S. Election Assistance Commission: What Role in the Administration of Elections?

What role in the administration of elections will the new U.S.Election Assistance Commission (EAC) play, and how does thatrole differ from past federal involvement? The answers are uncertainbecause delays in appointing the commission members and insufficientfunding severely handicapped early activities. This articleexamines the factors that influence the EAC's emerging role:the commission's background, structure, tasks and tools, start-upactivities, and recent issues. Because the principal impactof the EAC is indirect, affecting election administration throughthe states, we draw on the "tools of government" literatureto frame the discussion. Although the Help America Vote Actof 2002, which created the EAC, continues a long line of federalregulatory mandates in the elections arena, the EAC has almostno regulatory authority. Its principal tools are grants andinformation—instruments of cooperative, rather than coercive,federalism. Given that the major grant programs are ending,the EAC's long-term contribution will likely be to create anddisseminate information.     

How to argue about the new public management

Hood and Jackson's (1991) distinction between administrative argument and administrative philosophy has been largely overlooked in writings on NPM. This seemingly subtle distinction flows from the more obvious one between “practical argument” and “social scientific explanation.” These terms refer to different scholarly practices. Practical reasoning is a highly-developed form of scholarship in law, public policy, and political theory. Explanation is a highly-developed scholarly activity in political science and related disciplines. The fact that practical argument and explanation are, in principle, complementary scholarly activities in practically-oriented fields such as public management is not a reason to overlook the distinction between them. If scholars writing on NPM made more of this distinction, it might prove easier for their readers to see precisely how social science explanations and practical arguments are interrelated. Discussion of how well claims have been supported would then be facilitated. Also, it would be easier for writers to decide how to engage the NPM literature. Not only would the issues be clearer, but it would also be easier to discuss the merits of alternative approaches to tackling them. If more weight is given to the distinction between practical argumentation and social scientific research by scholars of NPM, an urgent question is: how should the scholarly practice of practical argumentation be characterized?     

Program Budgeting and Accountability in Local Government

Much has been written about program budgeting and its relevance to improved efficiency and effectiveness. However, there is little discussion about the relationship between the use of program budgeting and accountability. While, organisations using program budgeting focus on the issues of performance, the accountability of management to an elected body, such as a local council has been given little attention. In this article three questions are posed: (1) Is the performance information available to enable councillors to form a judgment about management's performance?; (2) Is management involved in determining issues of policy, such as objectives, programs and performance measurement?; and (3) Are councillors confronted by a greater volume of budgetary documentation but with no increase in time to consider it? The results show that program budgeting does not always enhance accountability in local government.     

New Public Management in Swiss municipalities

Swiss municipalities are being stretched to their limits. In the years from 1995 to 1997, 32% of all Swiss municipalities closed with a deficit. In response to this situation, numerous reforms have been introduced since the start of the 1990s in order to improve the performance capability of the municipalities. Aside from intermunicipal cooperation, New Public Management (NPM) is the reform project that is currently being discussed most in the Swiss municipalities. Recent data shows that every fourth municipality has already taken first steps with NPM. Many kinds of activities are understood as being encompassed by NPM, even when not all aspects of NPM are implemented. Only one fifth of the municipalities that have introduced NPM are already working with key elements such as product definitions, performance agreements, and global budgets, which are necessary for an orientation toward output and outcome. In municipalities of less than 1,000 inhabitants NPM is still hardly an issue, while a number of towns with over 10,000 inhabitants are looking into NPM quite intensively. NPM programs are being developed primarily in municipalities that are part of German-speaking Switzerland. Municipalities that offer a wide range of services consider new steering models, such as NPM, far more frequently than those with a narrower range. The financial situation has little influence on whether NPM is introduced.     

Museum Outreach Programs to Promote Community Engagement in Local Environmental Issues

Ideas of ‘community’ and ‘community voice’ have been mobilised in collaborative programs developed between the National Museum of Australia and the Murray‐Darling Basin Commission since 1992. This collaboration is set within a broader context of changing ideas and practice around governance, community and environmental issues. The recent Murray‐Darling Outreach Project (MDOP), a series of museum outreach projects with regional communities aiming to increase community engagement in local environmental issues in the Murray‐Darling Basin, is specifically examined. Evaluation research on the MDOP found that the approach to program development significantly shaped the types of voices, range of issues presented and the nature of the communicative forums established. The potential impacts on online audiences are discussed along with broader implications for government agencies involved in community partnerships.