Accountability Practices in Public Child Welfare Services

The literature on child welfare caseworkers’ accountability practices is fairly scant. This article observes and unravels accountability in child welfare practices using interview data. Findings show that child welfare caseworkers (frontline workers) face multiple and conflicting goals and mandates imposed upon them by their organizations, systemic rules, procedures, their clients, and their own professional norms. There were conflicts among accountability sources and caseworkers manage accountability with multiple strategies. Most of the interviewees showed that they acknowledged the significance of accountability management. The implications of these findings are discussed.     

Reinforcing public responsibility? Influences and practices in street‐level bureaucrats' engagement in policy design

Previous literature demonstrates that when street‐level bureaucrats believe that the policy as designed is not desirable, they utilize various strategies to change the situation. This study suggests that when street‐level bureaucrats believe that fixing a policy through the manner in which it is implemented is not enough, they will try to influence the design of the policy directly. Three factors promote this decision: public perceptions revealed in their interactions with clients, professional ethical values and a supportive organizational environment. We test this argument using Israeli public social workers in the context of urban renewal. We discuss the problems and benefits of involving street‐level bureaucrats in policy design and view such actions as related to welfare reform and changes in the state's responsibility for its citizens. We maintain that in this changing environment, street‐level bureaucrats' involvement in policy design should be formally institutionalized.     

Bureaucratic decision-making: A multi-method study of gender similarity bias and gender stereotype beliefs

Research finds evidence for bias in frontline workers’ decision-making affecting citizens, but important questions remain about the underlying causal logics: which mechanisms explain disparity in decision-making for different demographic categories of citizens? To what extent is frontline workers’ decision-making influenced by cognitive biases toward citizens similar to themselves (similarity bias) and by stereotypes? Focusing on gender bias and drawing on social identity theory and gender stereotype theory, this article examines how caseworker–citizen gender similarity and gender stereotypes shape caseworkers’ decision-making. Using (a) an experimental vignette, (b) measurement of gender stereotype beliefs from a Brief Implicit Association Test, and (c) quasi-experimental administrative data, we examine the effects of gender similarity and gender stereotypes in the policy area of child visitation in Denmark. We find support for both gender similarity and gender stereotype expectations. Moreover, the effect of gender stereotypes appears slightly larger than that of gender similarity.     

Negotiated compliance at the street level: Personalizing immunization in England,Israel and Sweden

Often portrayed as behaviour that is inconsistent with policy goals, public noncompliance poses a significant challenge for government. To explore what compliance efforts entail on the ground, this study focuses on childhood immunization as a paradigmatic case where a failure to ensure compliance poses a public health risk. The analysis draws on 48 semi‐structured interviews with frontline nurses and regional/national public health officials in England (N = 15), Sweden (N = 17) and Israel (N = 16), all of which have experienced periodic noncompliance spikes, but differ in direct delivery of vaccination provision. Compliance efforts emerged as a joint decision‐making process in which improvisatory practices of personalized appeals are deployed to accommodate parents’ concerns, termed here ‘street‐level negotiation’. Whereas compliance is suggestive of compelling citizens’ adherence to standardized rules, compliance negotiation draws attention to the limited resources street‐level workers have when encountering noncompliance and to policy‐clients’ influence on delivery arrangements when holding discretionary power over whether or not to comply.     

Do consistent government policies lead to greater meaningfulness and legitimacy on the front line?

We investigate the impact of policy consistency on frontline workers’ perceptions of policy meaningfulness and legitimacy. The results from an experiment involving 779 teachers indicate that policy consistency does have a positive effect on legitimacy and to a lesser extent on meaningfulness. However, the extent depends on policy content and the degree of autonomy. Overall, our findings emphasize the potential positive impact of policy consistency. Although this, to some extent, conflicts with the nature of political decision‐ and policy‐making (i.e., democratically elected governments have been mandated to change policy), our study suggests that policy consistency could be a valuable strategy for governments to strengthen successful policy implementation. This adds a new perspective to the continuing debate within policy implementation and street‐level bureaucracy research on how to account for the complex, messy and sometimes contradictory implementation of public policies.     

Do tax officials use double standards in evaluating citizen‐clients? A policy‐capturing study among Dutch frontline tax officials

In line with psychological and economic discrimination theories, street‐level bureaucracy studies show a direct effect of citizen characteristics on officials' judgements, or show how street‐level bureaucrats employ stereotypical reasoning in making decisions. Relying on sociological double standards theory, this study hypothesizes that citizen‐clients' status characteristics influence officials' evaluations not only directly, but also indirectly and more pervasively by influencing the interpretation of other signals. By means of a policy‐capturing study among Dutch frontline tax officials, this study takes a first step in testing double standards propositions in the context of official–citizen encounters. The findings support only some hypotheses, but indicate that citizen‐clients' level of education could serve as a moderating context affecting the interpretation of cues. The article provides important theoretical and methodological guidelines for future research on stereotyping at the front line.     

STREET‐LEVEL BUREAUCRACY AND PUBLIC ACCOUNTABILITY

The concept of ‘street‐level bureaucracy’ was coined by Michael Lipsky (1980) as the common denominator for what would become a scholarly theme. Since then his stress on the relative autonomy of professionals has been complemented by the insight that they are working in a micro‐network of relations, in varying contexts. The conception of ‘governance’ adds a particular aspect to this: the multi‐dimensional character of a policy system as a nested sequence of decisions. Combining these views casts a different perspective on the ways street‐level bureaucrats are held accountable. In this article some axiomatic assumptions are drawn from the existing literature on the theme of street‐level bureaucracy and on the conception of governance. Acknowledging variety, and arguing for contextualized research, this results in a rethinking of the issue of accountability at the street level.     

IS OUTPUT PERFORMANCE ALL ABOUT THE RESOURCES? A FUZZY‐SET QUALITATIVE COMPARATIVE ANALYSIS OF STREET‐LEVEL BUREAUCRATS IN SWITZERLAND

This article refines Lipsky's assertion that lacking resources negatively affects output performance. It uses fuzzy‐set Qualitative Comparative Analysis to analyse the nuanced interplay of contextual and individual determinants of the output performance of veterinary inspectors as street‐level bureaucrats in Switzerland. Moving ‘beyond Lipsky’, the study builds on recent theoretical contributions and a systematic comparison across organizational contexts. Against a widespread assumption, output performance is not all about resources. The impact of perceived available resources hinges on caseloads, which prove to be more decisive. These contextual factors interact with individual attitudes emerging from diverse public accountabilities. The results contextualize the often‐emphasized importance of worker–client interaction. In a setting where clients cannot escape the interaction, street‐level bureaucrats are not primarily held accountable by them. Studies of output performance should thus consider gaps between what is being demanded of and offered to street‐level bureaucrats, and the latter's multiple embeddedness.     

NEGOTIATING BUREAUCRATS

This article will present the argument that frontline bureaucrats fulfilling their duties within an infrastructure bureaucracy can be understood as negotiating bureaucrats, policymakers, and cousins to street‐level bureaucrats. Empirically, the argument is based on data from an exploratory case study of a major road construction project in Sweden collected through passive participatory observation, interviews, and documents; the main source of theoretical inspiration is implementation theory and the theory of street‐level bureaucracy. Working conditions, both similar to and different from street‐level bureaucrats, are discussed, and patterns of negotiating practices are identified and analyzed. The analysis indicates that a fragmented implementation structure has effects on when and how negotiating practices are applied, and on policy outcomes, bureaucratic legitimacy, and political efficacy.     

Connecting governance and the front lines: How work pressure and autonomy matter for coping in different performance regimes

How frontline employees cope with perceived work pressure may be of direct influence on policy outcomes. This study contributes to the street‐level bureaucracy literature in several ways. First, we study both passive client‐oriented and active system‐oriented coping. Second, we analyse how these coping behaviours relate to work pressure and work autonomy. Finally, this article analyses whether these relationships are conditioned by the performance regime. Using a unique set‐up of hospital employees (n = 979) working in external and internal performance regimes, we find a higher level of system‐oriented active coping than client‐oriented passive coping. Moreover, we find that autonomy matters for system‐oriented coping and work pressure for client‐oriented coping, and that these relationships are context‐dependent.     

Transferring emotional capital as coerced discretion: Street‐level bureaucrats reconciling structural deficiencies

The discretion of street‐level bureaucrats (SLBs) plays a key role in policy implementation. This study offers a new perspective on the meaning of discretion under social policy reforms, which created new structural deficiencies in the work of SLBs and have raised expectations of policy implementation without offering sufficient policy responses. Under such conditions, the discretion of SLBs should be understood as coerced, more so than as a positive element of freedom and choice. As such, SLBs are forced to employ informal practices and provide alternative resources for their clients. Findings indicate a transference of emotional resources from SLBs to clients, aimed at achieving policy outcomes of economically independent citizens, paradoxically accompanied by an awareness of powerful barriers to such conversion. The study contributes both to the understanding of discretion in policy implementation, in the context of an expanding public service gap, and to theories of emotion manifestation in public administration.     

Implementing European case law at the bureaucratic frontline: How domestic signalling influences the outcomes of EU law

This article analyses the implementation of European case law at the bureaucratic frontline of European member states. Theoretically, insights from street‐level implementation studies are combined with judicial impact research. Empirically, we compare how EU rules on free movement and cross‐border welfare are applied in practice in Denmark, Austria and France. We find that when applying EU rules in practice, street‐level bureaucrats are confronted with a world of legal complexity, consisting of ambiguous rules, underspecified concepts and a recent judicial turn by the Court of Justice of the European Union. In order to manage complexity, street‐level bureaucrats turn to their more immediate superiors for guidance. As a consequence, domestic signals shape the practical application of EU law. Despite bureaucratic discretion and many country differences, domestic signals create uniform, restrictive outcomes of EU law in all three cases. Thus we show that there is considerable room for politics in EU implementation processes.     

Searching for “the usual suspects”: The role of discretion and target group constructions in the frontline of policy implementation

This study investigates the implementation of preventive policy targeting children. Based on longitudinal survey data we analyze how frontline workers assign meaning to core concepts of the policy and categorize the children and in this light how their exercise of discretion affects policy implementation. Many studies problematize the effects of limiting the discretion in the frontline. We identify a case where the policy is highly ambiguous, the definitions of target groups, core concepts, or central goals are vague, and the general steering of the frontline is not characterized by a lack of discretion but a lack of organizational boundaries to shape the discretion. This expands not only the policymaking role of the frontline but also becomes a barrier to developing a stronger preventive effort. The findings give nuanced insight into how organizational boundaries affect the discretion and target group construction in the frontline during frontline implementation of welfare policies.     

INFORMATION‐SHARING AND CONFIDENTIALITY IN SOCIAL POLICY: REGULATING MULTI‐AGENCY WORKING

In recent years, there has been growing concern in the UK that local services aimed at risky or vulnerable people are ineffective, because of agencies’ persistent failure to share information about their clients. Despite considerable national policy effort to encourage better information‐sharing, previous research indicates that there are many cases where information is still not shared when it should be, or where it is shared when it should not be, with potentially devastating results. This article uses data from the largest empirical study of local information‐sharing yet undertaken to examine four policy sectors where multi‐agency working has come to the fore. It shows that variations in their information‐sharing and confidentiality practices can be explained by neo‐Durkheimian institutional theory and uses insights from this theory to argue that current policy tools, which emphasize formal regulation, are unlikely to lead to consistent and acceptable outcomes, not least because of unresolved conflicts in values and aims.     

SUPRANATIONAL GOVERNANCE OR NATIONAL BUSINESS‐AS‐USUAL? THE NATIONAL ADMINISTRATION OF EU STRUCTURAL FUNDS IN THE NETHERLANDS AND DENMARK

The partnership principle in EU cohesion policy was introduced in order to involve subnational authorities and interest organizations in policy formulation and implementation. In this article we examine how the member states have reacted to this call for a new way of making public policy. We argue that the multi‐level governance literature and the critics of the multi‐level governance framework have not examined implementation structures properly, but have focused on regional influence. We conduct a comparative analysis of the Dutch and Danish implementations of the European Social Fund and the European Regional Development Fund. Our findings show that when examining implementation structures it becomes clear that member states are in full control of the re‐allocation of EU funds. They show that Denmark and The Netherlands have been able to absorb EU cohesion policy within already existing national implementation structures of labour market policies and regional development. One central theoretical implication of our study is that the focus of studies of any fundamental re‐allocation of power resources in cohesion studies should comprise the entire network of implementation rather than the strategies of its individual component actors.     

Generalists and specialists in executive politics: Why ambitious meta‐policies so often fail

This article contributes to the politics of policy‐making in executive government. It introduces the analytical distinction between generalists and specialists as antagonistic players in executive politics and develops the claim that policy specialists are in a structurally advantaged position to succeed in executive politics and to fend off attempts by generalists to influence policy choices through cross‐cutting reform measures. Contrary to traditional textbook public administration, we explain the views of generalists and specialists not through their training but their positions within an organization. We combine established approaches from public policy and organization theory to substantiate this claim and to define the dilemma that generalists face when developing government‐wide reform policies (‘meta‐policies’) as well as strategies to address this problem. The article suggests that the conceptual distinction between generalists and specialists allows for a more precise analysis of the challenges for policy‐making across government organizations than established approaches.     

Reproductive health policy‐makers: Comparing the influences of international and domestic institutions on abortion policy

Do policies protecting women's rights correspond with norm change at the state level or the level of international institutions? We examine this question, comparing domestic and international institutional activity in correlation with reproductive health policy change, specifically, abortion access policy. At the domestic level, we examine female legislators and policies set to encourage gender equality, namely, electoral gender quotas. In the international arena, our theory distinguishes regional from international inter‐governmental bodies. Original data with measurement innovations introduced here—including the Comparative Abortion Policy Index (CAPI1 and CAPI2)—are analysed for over 150 countries for close to two decades. We find a heretofore‐overlooked relationship between international entities and reproductive health. Gender quotas, however, do not correspond with the general association between female representation and pro‐women policy. When researchers and policy‐makers consider gender quotas to promote women's rights, they may be advised to encourage female political participation through more organic means.     

Developing New Forms of Partnership With the ‘Market’ in the Procurement of Public Services

This article provides a conceptual framework for understanding the key differences between newly emerging ‘market’ relationships and more traditional forms of procurement by public sector organizations. It highlights how multiple relationships between service clients in the public sector and other stakeholders mean that service clients may often co‐produce welfare changes in their communities in ways which professional and commercial providers cannot easily control and may not fully understand. It highlights the very different nature of collaborations which affect single commissioners and contractors (relational contracting), multiple commissioning bodies with a unified procurement policy (partnership procurement) and multiple commissioning bodies with diverse procurement policies empowered by a single purchasing body (distributed commissioning). The article suggests that traditional conceptions of the ‘market’ and of ‘market management’ are now outdated and need to be revised to take into account the potential of collaborative relationships between multiple stakeholders in the public domain.     

ARE STREET‐LEVEL BUREAUCRATS COMPELLED OR ENTICED TO COPE?

Traditional studies of street‐level bureaucrats see the bureaucrat’s behaviour as a kind of self‐defence – a way to minimize negative aspects of the job and thereby job frustration. I argue – and empirically show – that it is equally relevant to consider at least part of street‐level bureaucrat behaviour as positively motivated – as a way of maximizing job satisfaction. Behavioural mechanisms such as coping are not just a way to avoid frustration, but also a way to gain satisfaction. This becomes clear when we attempt to explain differential treatment among regulated companies.     

Lost in Translation: A Multi‐Level Case Study of the Metamorphosis of Meanings and Action in Public Sector Organizational Innovation

This paper explores the early implementation of an organizational innovation in the UK National Health Service (NHS) – Treatment Centres (TCs) – designed to dramatically reduce waiting lists for elective care. The paper draws on case studies of 8 TCs (each at varying stages of their development) and aims to explore how meanings about TCs are created and evolve, and how these meanings impact upon the development of the organizational innovation. Research on organizational meanings needs to take greater account of the fact that modern organizations like the NHS are complex multi‐level phenomena, comprising layers of interlacing networks. To understand the pace, direction and impact of organizational innovation and change we need to study the interconnections between meanings across different organizational levels. The data presented in this paper show how the apparently simple, relatively unformed, concept of a TC framed by central government is translated and transmuted by subsequent layers in the health service administration, and by players in local health economies, and, ultimately, in the TCs themselves, picking up new rationales, meanings and significance as it goes along. The developmental histories of TCs reveal a range of significant re‐workings of macro policy with the result that there is considerable diversity and variation between local TC schemes. The picture is of important disconnections between meanings, that in many ways mirror Weick's (1976) ’loosely coupled systems’. The emergent meanings and the direction of micro‐level development of TCs appear more strongly determined by interactions within the local TC environment, notably between what we identify as groups of ’idealists’, ’pragmatists’, ’opportunists’ and ’sceptics’ than by the framing (Goffman 1974) provided by macro and meso organizational levels. While this illustrates the limitations of top down and policy‐driven attempts at change, and highlights the crucial importance of the front‐line local ’micro‐systems’ (Donaldson and Mohr 2000) in the overall scheme of implementing organizational innovations, the space or headroom provided by frames at the macro and meso levels can enable local change, albeit at variable speed and with uncertain outcomes.