Policy Alienation of Public Professionals: A Comparative Case Study of Insurance Physicians and Secondary School Teachers

Currently, there is an intense debate on the pressures facing public professionals in service delivery. Several studies show increasing discontent among professionals toward policies they have to implement. In this article, we aim to contribute to this topic by analyzing this discontent of public professionals in terms of “policy alienation.” The policy alienation concept is used to frame the experiences of professionals in a coherent theoretical framework. We have used a qualitative comparative case study of Dutch insurance physicians and secondary school teachers to study the factors that influence the degree of policy alienation across different domains. Our article shows that facets of New Public Management are important in explaining the pressures on public professionals implementing public policies. However, others factors are also prominent, and the degree of the implementers' professionalism seems especially important. These insights help in understanding why public professionals embrace or resist the implementation of public policies.     

PROFESSIONALISM AND PUBLIC POLICY MAKING IN GREECE: THE INFLUENCE OF ENGINEERS IN THE LOCAL GOVERNMENT REFORMS

The influence of Professionals in the formulation of public policies has been an issue of scientific research in the past decade. In this article we deal with a less examined as of this issue. Professional influence is analysed in the context of Greek public policy, where the intensely centralized administration is dominated by the demands of political clientelism. Focusing on the case of the influence of peers in local government reform between 1974 and 1989, the article reveals the role of Trofessiondism in the hesitant decentraiization of functions and resources to local authorities and the initiation of institutions that have allowed the birth and development of new organizations at the central and the local level. Given the shift towards partydirected patronage and the intense party politiciza-tion of professional and trade organizations, the central state aparatus and the local authorities in post-dictatorship Greece, professional influence in putlic policies is seen to be closely related to the rise of professionals in party hierarchies. The catalytic role of professionals in the promotion of reform policies reducing organizational diversity and fragmentation is understood within the context of the contradiction between the need to adapt state structures and practices in a rapidl changing international environment and the preservation of traditional political and acyministrative forces in key positions of the power structure.     

NEW PUBLIC MANAGEMENT VALUES AND PERSON‐ORGANIZATION FIT: A SOCIO‐PSYCHOLOGICAL APPROACH AND EMPIRICAL EXAMINATION AMONG PUBLIC SECTOR PERSONNEL

This paper takes a socio‐psychological approach to NPM and its value‐based theory in public administration. We develop a model for the study of NPM values based on the idea of Person‐Organization Fit (POF) and examine it empirically. Findings, based on a survey of 205 Israeli local governance personnel, revealed that the POF of several core NPM values (that is, responsiveness, transparency, innovativeness, and achievement orientations) was positively related with job satisfaction, organizational commitment, and service climate, as reported by these public personnel. The findings suggest that, beyond modern strategies and effective policies for the public sector, lies an essential quest for NPM value‐fit with public personnel. Consequently, the study advocates a better theoretical and practical understanding of the socio‐psychological interfaces, such as POF, in public administration. Implications and directions for future studies are discussed, both in the context of public administration research and in the generic field of organizational behaviour theory and practice. The detailed results of the factor analyses are available directly from the authors.     

ON THE BUREAUCRACY OF BUREAUCRACIES: ANALYSING THE SIZE AND ORGANIZATION OF OVERHEAD IN PUBLIC ORGANIZATIONS

Governments across the globe try to rebalance their budgets by rationalizing overhead operations. When overhead‐reducing policies are adopted, it is important to understand why some central government organizations have a higher overhead than others, and why organizational models to produce overhead efficiencies are used to different degrees. This study focuses on the Flemish context to analyse differences between central government organizations in the size and organization of two overhead processes: human resources management (HRM) and finance and control (FIN). Significant effects are found for autonomy, organizational size, spatial dispersion and budgetary stress, yet effects vary according to whether HRM or FIN is considered and whether the focus is on the size or the organization of HRM or FIN. Our findings have practical implications to get a process‐sensitive understanding of the size and organization of overhead, and theoretical implications as they cast light on factors that shape decision‐making in public organizations.     

Energy conservation policy in the united states and Sweden: Comparing research and development responses

This study assesses the comparability of public sector responses to energy conservation research and development (R&D) in the United states and Sweden. Using the evaluative criteria of policy objectives, organizational structure, and funding, the extent to which the institutional context for R&D either constrains or fosters conservation as an element of each nation's energy policies is examined. Sweden, unlike the United States, appears to have been successful in achievement consensus primarily through an open, deliberative process of mutual partisan adjustment regarding where specific allocations should be made in the energy R&D budget for optimal conservation results. To a great extent, it is within these differing institutional contexts of policy uncertainly that the content of specific energy conservation policies and strategies should be evaluated.     

Organizational position and program implementation

Examples of policy implementation success suggest that organizational characteristics are important but policy researchers generally neglect the explicit study of organizational characteristics. Data from a mailed survey are used here to examine two organizational characteristics in one policy area in a single state. The advice of capacitybuilders' (federal and state agencies, municipal associations) about organizing local energy management programs through the appointment of “comprehensive local energy coordinators” is one concern. The other is the importance of the regular organizational position of the parttime community energy coordinators on the “comprehensiveness” of community energy programs.

The research develops a rudimentary methodology for studying program implementation which assesses organizational change by measuring differences among policies based on the dimensions of change embodied in a policy. Also devised are measures of program implementors' attitudes and perceptions in influencing program implementation. The findings demonstrate the usefulness of greater linkages of research across the organizational change and program implementation literatures.     

A Model of Learned Implementation

The majority of the literature concerning the implementation of public policy assumes that public managers can carry out new policy initiatives regardless of the behavioural, cognitive or technical demands that the introduction of such policies may make upon them. There has been a tendency to assume that managers actually have the detailed technical knowledge by which to enact such new policies. The paper proposes that in effect, public managers have to learn a range of often new and detailed techniques in order to implement what are often ambiguous policy directives. Drawing on data gathered from the introduction of capital investment appraisal in the British National Health Service, a model of Learned Implementation is presented that describes one way in which public managers can learn to enact new policy initiatives. Using a mix of six organizational processes and variables, the model demonstrates how learning occurs and is used to solve the problems that are inherent in the introduction of new policy initiatives. The model further describes how the managers routinize these solutions into job tasks and procedures and hence a policy initiative is operationalized. The paper concludes with a discussion about the difficulties of predicting the operational consequences of new policy initiatives and raises questions about knowledge, ability and capability in the implementation of public policy.     

The Effects of Competition Policy on Development – Cross-Country Evidence Using Four New Indicators

Over the last two decades, many developing countries have introduced competition policies. This paper introduces four new indicators on various aspects of competition laws and competition agencies to make competition policies comparable. These indicators are used to estimate the effects of competition policies and all four contribute at least marginally to explaining differences in total factor productivity. This is also true if developing countries are analysed separately. In addition to the direct effects of competition policy on total factor productivity, an indirect effect is identified: countries scoring high with regard to competition policy suffer less from corruption.     

State urban enterprise zones: origin,policy context,and administrative constraints

This article examines the origins of state enterprise zone policies. Further, the range of state enterprise zones are reviewed, drawing out patterns and generalizations of implementing this type of revitalization policy. As part of this analysis President Reagan urban policy is analyzed as to its effect on state programs. Lastly, the article analyzes three important obstacles - labor, incentives, and politics - that state and local administrators must negotiate to successfully implement the enterprise zone policy.     

The Mechanism of State Charter School Policy Adoption: The Case of American States

This article concentrates on charter school policy that is regarded as the fastest growing innovative policy in America. Its adoption is more impressive than other innovative policies in the public educational area. By 2008, 40 states among 50 American states have passed charter school law since Minnesota became the first pathfinder to create charter school law about two decades ago. However, 10 states have not adopted charter school law. Based on this dichotomous policy phenomenon, the primary research question of the study focuses on clarifying what factors drive American states to adopt charter school policy. To obtain answers for this research question, the study dedicates to analyzing main hypotheses from the regional diffusion model and state characteristics, using event history analysis. The results demonstrate that the three predictor variables—regional diffusion, similar innovation, and gubernatorial political tendency—positively have significant effects in explaining the adoption of American state charter school policy.     

Evaluation, Policy Learning and Evidence-Based Policy Making

The increasing emphasis on the need for evidence-based policy indicates the continuing influence of the 'modernist' faith in progress informed by reason. Although the rationalist assumptions of evidence-based policy making have been subject to severe challenge from constructivist and post-modernist perspectives, it is argued that the attempt to ground policy making in more reliable knowledge of 'what works' retains its relevance and importance. Indeed, its importance is enhanced by the need for effective governance of complex social systems and it is argued that 'reflexive social learning' informed by policy and programme evaluation constitutes an increasingly important basis for 'interactive governance'. The expanded use of piloting of new policies and programmes by the current UK Government is considered to provide limited scope for evaluation to derive reliable evidence of whether policies work. There is a need for greater clarity about the role of evaluation in situations where piloting essentially constitutes 'prototyping'. More emphasis should be placed on developing a sound evidence base for policy through long-term impact evaluations of policies and programmes. It is argued from a realist position that such evaluation should be theory-based and focused on explaining and understanding how policies achieve their effects using 'multi-method' approaches.     

PUBLIC PRIVATE PARTNERSHIPS: ADDED VALUE BY ORGANIZATIONAL FORM OR MANAGEMENT?

The central idea of public private partnerships (PPPs) is that added value can be achieved from greater co‐operation between public and private actors. In general, the literature speaks of PPPs in which public and private actors develop a more or less sustainable co‐operation through which they realize products, services, or policies together, share risks, and develop an organizational form to arrange this. The assumption is that a higher degree of PPP leads to more and better outcomes because public and private actors combine their knowledge and resources. One can find a wide array of organizational forms in which this co‐operation is organized and the literature pays a great deal of attention to these forms. But is this organizational form really so important, or are the intensity and type of managerial strategies more important for the outcomes? Based on a large survey of individuals involved in Dutch environmental projects, we show that although the degree of PPP correlates positively with the outcomes of projects, this correlation disappears when we include in the analysis the number of managerial strategies employed. The organizational form does not have significant impact on outcomes and the conclusion we draw is that scholars and practitioners of public private partnerships should pay greater attention to the managerial efforts necessary to develop and implement PPPs.     

LEADERSHIP IN PUBLIC SERVICES NETWORKS: ANTECEDENTS,PROCESS AND OUTCOME

In this article, the authors examine the implementation of policy aimed to promote the role of organizational networks and distributed leadership in the establishment and consolidation of public service reform. In theory, leadership and networks should complement each other, with the less hierarchical logic of the network allowing leadership of change, distributed among network members, rather than led from a single organizational apex, to flourish. In practice, as a consequence of inherent bureaucracy, power differentials between network participants, and a strong centralized performance management policy regime, a relatively parsimonious form of distributed leadership is enacted, with the networks tending towards ‘managed partnerships’.     

Public Policies, Private Strategies and Local Public Spending Bodies

Local Public Spending Bodies (LPSBs) occupy an important position in the contemporary structures of governance in the UK. As exemplars of many of the diverse characteristics of the New Public Management, LPSBs inhabit the fuzzy space between the public and private spheres, both in terms of organizational structure and service delivery. One finding from recent research into the internal governance of three kinds of LPSBs – Further Education Colleges, Housing Associations and Training and Enterprise Councils – was that the language of strategy predominated over that of policy on the boards of such organizations. In this article we assess the significance of this finding. We contend that the two terms are not interchangeable and that a vital distinction needs to be maintained between them. Specifically we argue that policy refers to collections of decisions grounded in public values whereas the concept of strategy, particularly as currently understood in the context of the New Public Management, refers to the positioning of an organization in its struggle to survive and grow. We conclude that LPSBs have been invited to behave strategically within a framework of increasingly centralized policy objectives and resource allocations.     

Implementing evidence-based policy in a network setting: road safety policy in the Netherlands

In the early 1990s, in order to improve road safety in The Netherlands, the Institute for Road Safety Research (SWOV) developed an evidence-based "Sustainable Safety" concept. Based on this concept, Dutch road safety policy, was seen as successful and as a best practice in Europe. In The Netherlands, the policy context has now changed from a sectoral policy setting towards a fragmented network in which safety is a facet of other transport-related policies. In this contribution, it is argued that the implementation strategy underlying Sustainable Safety should be aligned with the changed context. In order to explore the adjustments needed, two perspectives of policy implementation are discussed: (1) national evidence-based policies with sectoral implementation; and (2) decentralized negotiation on transport policy in which road safety is but one aspect. We argue that the latter approach matches the characteristics of the newly evolved policy context best, and conclude with recommendations for reformulating the implementation strategy.     

POWER, RATIONALITY AND LEGITIMACY IN PUBLIC ORGANIZATIONS

In this paper we propose answers to the research question: how does power shape the construction of legitimacy in the context of public organizations? We suggest that while organizational structures of dominancy will be embedded, not all structures of dominancy align with those that are normatively presented as legitimate and authoritative. Such situations make the creation and sustenance of legitimacy problematic for organizational action. This paper advances our understanding of the relation between power, rationality and legitimacy by showing how structures of domination recursively constitute, and are constituted by, legitimacy that may not be authoritative. We show, empirically, how these relations prevented a police organization from reforming by breaking the recursive patterns of domination and legitimization. Theoretically, we argue that understanding organizational change must be connected to issues of power and legitimacy.     

THE LIMITS OF KNOWLEDGE MANAGEMENT FOR UK PUBLIC SERVICES MODERNIZATION: THE CASE OF PATIENT SAFETY AND SERVICE QUALITY

This article assesses the contribution of management of knowledge across organizational and professional boundaries towards improved public services. We empirically investigate the potential for knowledge sharing within the context of the NHS modernization agenda, taking as our focus the current ‘patient safety’ policy agenda. Specifically, we evaluate the introduction of a knowledge management system, namely the National Reporting and Learning System (NRSL) and its impact in the area of operating theatres within a university teaching hospital. We suggest that government policy in this area needs to reflect more upon limits to the management of knowledge and issues of the nature of knowledge, professional cultures and institutional power and politics.     

CONVERGING UNDER PRESSURE? COUNTERTERRORISM POLICY DEVELOPMENTS IN THE EUROPEAN UNION MEMBER STATES

This article analyses counterterrorism policy convergence among the 27 European Union (EU) member states between 2000 and 2006. While considerable academic interest has been devoted to the common European Union policy in response to terrorism after September 11, few studies have compared counterterrorism policy-making at the member state level. This gap raises the question whether the institutional framework of European counterterrorism policy-making has stimulated convergence of national policies. Data on five policy instruments for counterterrorism show that the aggregated implementation rate increased by almost 55 per cent in this period, which indicates a trend towards policy divergence within the EU as a whole. However, the findings also reveal significant variation in the level and pace of policy instrument implementation. One potentially important variable explaining national policy developments is the degree of political pressure from the EU on member states, while EU membership accession and national counterterrorism policy legacies were less important factors.     

Thinking outside the box,improvisation, and fast learning: Designing policy robustness to deal with what cannot be foreseen

Policies are continually subjected to turbulence and crises. Interest in policy robustness as a fundamental way to deal with what cannot be foreseen is increasing. Thus, there is a flourishing stream of literature suggesting that policies need to be designed to be agile and flexible. However, the associated characteristics remain undeveloped. This article fills this gap by drawing on lessons obtained from the unplanned behaviors that were adopted in the management of the COVID-19 pandemic. Individual and organizational behaviors characterized by outside the box thinking, improvisation, and fast learning yielded solutions to unexpected problems. In this article, some of these emblematic unplanned behaviors are assessed, and the research builds on the literature on policy robustness, crisis management, and organizational theory to identify three enabling conditions to design more robust policies: coordinated autonomy, training for unplanned responses, and political institutional capacity.