RESTRUCTURING WEBERIAN BUREAUCRACY: COMPARING MANAGERIAL REFORMS IN EUROPE AND THE UNITED STATES

In much of the international public administration literature, New Public Management (NPM) already appears to be bogged down in a quagmire of critical revisions and assessments. Although some criticisms are well founded, there can be no doubt that NPM represents a trend which has considerably affected public‐sector decision‐making worldwide. This article takes the examples of the Southern European bureaucracies, where NPM‐inspired reforms were introduced later than in the English‐speaking world, but have nevertheless played a decisive role in the political agenda of both socialist and conservative governments. The paper presents the results of a comparative study of administrative reforms in five European countries as well as the USA during the 1980s and 1990s. The comparison is based on three specific dimensions (central bureaucracies’ formal structure; civil service organization; administrative processes), enabling us to systematically measure and compare the progress of the various countries subsequent to the cycle of managerial reforms.     

Local public management reforms in Germany

This article, part of a sequence of comparative articles on local government reforms in The Netherlands, Switzerland and Germany, describes and analyses the recent public management reforms at the local level of Germany. After an overview about the constitutional framework of local self government and the reform waves of the last decades, the paper concentrates on the 'new steering model' as the German variant of NPM. The article shows the short history of this reform movement, describes the main elements of the reform concept and explains some of the causes, forces and actors of implementation. It goes on to discuss the present status of implementation, explains several shortcomings of the concept, and presents the – very limited – empirical evidence of achieved results. Finally, the paper draws some conclusions from a comparative view on the similarities and differences of local management reforms in Germany and the two other countries.     

State Bureaucracy in Indonesia and its Reforms: An Overview

New Public Management (NPM) as a part of neoliberalism has increasingly become a global phenomenon and has transcended national boundaries, irrespective of whether they are English-speaking countries or non-English-speaking countries. This label of public management has not been interpreted and implemented in a single language, but has been adapted and implemented based on the contextual condition of given nations in terms of their socio-culture, history and formation, ideological inclination, and polity system. This article aimed at providing support to the above supposition, taking Indonesian public governance reforms as an example. The review of Indonesian reforms on public governance is expected to enrich the proliferation of international reforms on public governance in terms of how NPM has been travelling global and has been recontextualized in the existing values of Indonesian people.     

Local Government Modernization in Germany: Between Incrementalism and Reform Waves

In taking a historical-institutionlist approach, this paper looks at the development of administrative reforms in German local government which, because of the comparatively high degree of political and administrative decentralization of the Federal Republic has played a crucial role in the latter's entire politico-administrative setting and, hence, in its institutional reforms. The paper mainly identifies three stages in the post-war development of administrative reforms. During the 'planning movement' of the late 1960s and early 1970s, Germany's local level government and administration underwent significant and, to a considerable degree, lasting institutional changes. The 1980s were a period of incrementalist adaptation. Since the beginning of the 1990s, conspicuously later than in the Anglo-Saxon and Scandinavian countries, but earlier and faster than the federal and the Länder levels, Germany's local government has embarked upon dramatic changes particularly on two scores. First, in a growing number of municipalities and counties, administrative modernization was incorporated under the heading of a 'New Steering Model' (NSM) that largely drew on the dominant international New Public Management (NPM) debate. The dynamics of the ongoing administrative reforms are marked by an 'amalgamation' of NPM/NSM and earlier ('traditional') reform concepts. Secondly, at the same time, the political institutions of local government have under-gone a significant shift as a result of the introduction of direct democratic procedures (direct election of mayors and heads of counties, binding local referenda). The paper argues that it is this co-incidence and co-evolution of administrative and political reforms that make for the peculiarity of Germany's current modernization trajectory, distinguishing it from the Anglo-Saxon and, to a lesser degree, from the Scandinavian modernization paths.     

Commissioning for Health and Wellbeing: An Introduction

Local government reforms have been carried out in a number of European countries, aiming at both more effective service production and increased citizen participation in local politics. Although extensive research has been carried out analysing the content and background of these reforms, few if any, studies have considered the democratic effects of these reforms at the level of the individual citizen. This article investigates relationship between local government reforms and citizen trust in local government, focusing on individual-level data on local government reforms in Norway in 2008. The analysis shows that it is difficult to find a clear relationship between reform policies and trust in local politicians. These findings parallel other contributions in concluding that it is difficult to find substantial effects from local government re-organisations.     

Autonomy and managerial reforms in Europe: Let or make public managers manage?

Drawing on a survey of top executives in central governments in 11 European countries (N = 5,190), this study explores variations in the extent and scale of managerial autonomy across and within European states. The article is based on a comparative, multidimensional and relational approach to autonomy. Confirming predictions of qualitative studies, it shows that these variations can partly be explained by the intensity of New Public Management (NPM) reforms and provides a typology of European countries connecting the intensity of neo‐managerial reforms (measured by the declared use of management tools) to the degree of managerial autonomy. Our findings support Donald Kettl's hypothesis differentiating countries where the ‘let the manager manage’ model prevails, as in the Northern countries, by contrast with those, such as the United Kingdom, dominated by the ‘make the manager manage’ programme. The promise of managerial autonomy has also not been delivered to the same extent across and within countries.     

German and Italian Municipalities’ Internal Control Systems: Convergence to a Neo-Weberian Reform Pattern?

This article contributes to the debate on convergence/divergence of public management reforms toward the new public management (NPM) paradigm by analyzing the internal control systems (ICSs) in Germany and Italy. Specifically, the study describes the ICS established at the normative level in German and Italian municipalities and evaluates the extent of the decisional convergence to NPM, using the INTOSAI guidelines. Although similarities between the two ICSs and the INTOSAI guidelines emerged, decisional convergence is not demonstrated. Instead, these countries seem to converge to a Neo-Weberian reform pattern since they are cautious in the introduction of new managerial tools and they maintain their domestic original ICS.     

Strengthening local political leadership through institutional design: how and why

ABSTRACT

Over recent decades, the institutions of political leadership have been criticised for being caught up in outdated designs that are not adapting to societal changes. In many western countries, this diagnosis has spurred design reforms aimed at strengthening political leadership at the local level. Based on a study of reforms in Norwegian and Danish municipalities, this article first develops a typology of reforms aimed at strengthening local political leadership. Leadership reforms are categorised into four types aimed at strengthening Executive, Collective, Collaborative, or Distributive political leadership. The typology is used to map the prevalence of the different types of reforms in the two countries. The results show that design reforms as such are more widespread in Danish than in Norwegian municipalities. In particular, reforms aimed at strengthening Distributive political leadership are used more extensively in Denmark than in Norway. The article discusses the contextual differences that may explain this variation.     

Reshaping Public Administration: The Spanish Experience Compared to the UK

This paper analyses the nature and extent of the policies of modernizing Spanish public administration. Successive Spanish governments have been involved in modernizing public administration with the stress on customer focus, improving service delivery and implementing quality awards, service charts and information technologies.
As a basis for assessing the reforms, we compare Spanish New Public Management (NPM) developments with the initiatives undertaken in the UK. The paper evaluates the usage of NPM concepts in the Spanish and UK experiences and cultural differences based on public and common law traditions respectively, locating these reforms in a comparative context. We focus on why similar concepts and initiatives could provide such different results in each country and how the cultural and institutional features produce differences in the way that NPM postulates are defined, implemented, monitored and evaluated. The answer is probably rooted in the context in which the initiatives have been developing.     

Decoupled Implementation of New-Wave Land Reforms: Decentralisation and Local Governance of Land in Tanzania

Decentralisation is a key element in the new wave of land reforms that have been introduced in sub-Saharan Africa. However, not much research has been carried out into their implementation at the local level. Consequently, reforms are described in old-fashioned terms. Through comparative case studies in Tanzania, this article unpacks implementation as a process consisting of multiple administrative layers and potential actors. It concludes that implementation is slow and uneven due to the decoupling of layers within the formal land administration. Greater attention should be directed towards the local level as a part of the land administration structure.     

Local public management reforms in the Netherlands: fads, fashions and winds of change

Compared to other continental European countries, especially Germany and Switzerland, which have experimented with New Public Management (NPM) in local government, The Netherlands has been relatively quick in following trends stemming from Anglo-Saxon management thinking, but also relatively quick in redressing its course. The rise of the New Public Management in Dutch local government has been relatively swift and strong but also relatively superficial and non‐committal. The dominant picture that emerges is one of an administrative system that, while responsive to the latest trends, is also surprisingly stable. Management reforms, forcefully advocated in the 1980s, were decisively revised and redressed in the 1990s, with the city of Tilburg, celebrated for its 'Tilburg Model', a case in point. The Werdegang of NPM (that is, how things developed) in Dutch local government, detailed in this article, can be understood only partially as a result of changing economic and budgetary constraints. The article shows that endogenous features of the Dutch politico-administrative system – more specifically: the compact, dense and decentralized pattern of the intergovernmental network, the administrative tradition of pragmatism, dynamic conservatism and the comparatively technocratic character of local government – have also strongly influenced the reception, effect and correction of NPM in Dutch local government.     

NEW PUBLIC MANAGEMENT IN PUBLIC EDUCATION: A CATALYST FOR THE PROFESSIONALIZATION OF SWEDISH SCHOOL PRINCIPALS

New Public Management (NPM) is one of the most significant reforms in public welfare in recent times. Making individual civil servants more dependent on the directions of the local manager than on common professional standards, previous sociological research argues that NPM results in a ‘deprofessionalization’ of civil servants. Taking a somewhat different approach, recent public administration research indicates that NPM may, at the same time, enhance the professional status of welfare managers. By integrating the literature on the sociology of professions and public administration, this article develops a theoretical framework for understanding the influence of NPM using the example of a professional project for school principals in Sweden. Taking a process‐oriented methodological approach, the result shows that Swedish school principals gained increased support for their professional project by the introduction of NPM. The article argues that NPM can function as a catalyst for welfare managers' professional projects.     

New Public Management in Austria: Local Variation on a Global Theme?

This article tracks public sector reform in Austria with a focus on the influence of New Public Management (NPM) both as label and as specific set of reform ideas. We analyse to what degree current reforms have been influenced and shaped by this widely acclaimed international trend. In this empirical study we combine the different data sources of media coverage, reform documents and public sector executive survey to cover different levels of analysis. Although the reforms include NPM-features, we see no evidence so far for an archetype change in the Austrian public sector.     

HRM Reform in Decentralised Local Government: Empirical Perspectives on Recruitment and Selection in the Philippines and Thailand

Over the recent decades decentralisation has been an influential process for public sector reform. Like many countries in Southeast Asia, the Philippines and Thailand have experienced a transitional period of decentralisation since the 1990s, but its corresponding results are considered to be poor, allowing for an increase in corruption associated with local elites and other interested parties. This article addresses the problem by focusing on Human Resource Management (HRM), with an emphasis on recruitment and selection in decentralised local governments, as there exists limited research in this area. Despite similar outlook of decentralisation reforms in these countries, the comparative analysis will illustrate differences in HRM policy arrangements between the central and local government, which reflect on the roots and backgrounds of the reform initiatives in each country. Moreover, empirical case observations at the local level from four case cities will present positive HRM practices, as well as the negative ones. Such evidence cannot be explained by contemporary theories on decentralisation, most of which doubt feasibility of the reform in developing countries.     

HOW NEW PUBLIC MANAGEMENT REFORMS CHALLENGE THE ROLES OF PROFESSIONALS

ABSTRACT

The article discusses the relationship between New Public Management reforms and professional roles in European countries. The author presents the traditional autonomous role of professionals and argues that this role is challenged in New Public Management reforms. Then the author looks more closely into the comparative European literature on New Public Management reforms to find general messages about the specific challenges for professionals. And the Danish way of implementing New Public Management reforms is introduced with a specific combination of decentralisation, managerialism and democratisation. Professionals are faced with all of these reform strategies and each of them raises important research questions in a study of reforms and roles. Finally the author presents the few European comparative studies on actual changes in professional role as a consequence of New Public Management reforms and the result is the upcoming of maybe a new interactive role and professional managers. The result calls for further studies into these new roles.     

Renewal of local government in Scandinavia: Effects for local politicians

During the last decade, numerous local government reforms influenced by New Public Management (NPM) ideology have taken place throughout Scandinavia. Based on case studies in three Scandinavian municipalities, the article discusses the effects of introducing strategic political management on the role of councillors. We observe a conflict between NPM‐inspired management ideas and a deeply institutionalised, traditional view of councillors as representatives of the citizens, advocating peoples’ interest, defining needs, setting priorities and controlling implementation. Across national and local contexts, councillors find that the reforms challenge their traditional role and have strengthened administrative influence. Historical institutionalism seems to be a fruitful concept to understand resistance towards taking on new role models.     

Smallholder Livelihood Adaptation in the Context of Neoliberal Policy Reforms: A Case of Maize Farmers in Southern Veracruz,Mexico

Governments around the world have embraced trade liberalisation as a means of enhancing efficiency to realise economic growth and alleviate poverty. Likewise, the Mexican government implemented neoliberal policy reforms, the NAFTA in particular, to stimulate sustainable development. Using the Mexican maize sector as illustration, this article describes the adaptation process of smallholders to market changes shaped by these reforms. Going beyond the aggregated level, we have investigated smallholders' livelihood strategies. Contrary to what economic models estimated, our data suggests that farmers intensified the cultivation of maize rather than switch to sectors in which Mexico has a comparative advantage.     

New Public Management and Democratic Participation: Complementary or Competing Reforms? A South African Study

Abstract

Administrative and participatory reforms are common in developing countries, often introduced together and expected to complement each other. Some observers question whether the reforms do complement each other, however, specifically suggesting that the two types reflect different relational and governance patterns. Based on such thought, a “differential relationship influence hypothesis” is presented and tested, investigating whether new public management (NPM) reforms complement or compete with democratic‐participatory reforms. Econometric analysis of survey data shows that South African municipalities adopt NPM reforms more readily when influenced by top–down intergovernmental relationships but adopt participatory reforms more readily when faced with bottom–up civic influences. This evidence supports the hypothesis and indicates that administrative and participatory reforms may not complement each other. The study also indicates a common administrative culture effect on both types of reform adoption—differential relational influences can be tempered by experimental and change‐minded administrators in local governments.     

Territorial upscaling of local governments: a variable-oriented approach to explaining variance among Western European countries

Local government systems change at varying speeds. While some countries have dramatically reduced the number of local governments during a short period of time, other countries have seen only incremental change or relative inertia. A number of explanations for structural change have been put forward in the comparative local government literature, but these explanations have to a small extent been tested empirically. This article uses statistical indicators to analyse changes in the local government systems in 17 Western European countries between 2004 and 2014. Some often-cited explanations for what drives structural change receive little support. Still, the article demonstrates that changes tend to occur in situations marked by different combinations of decentralisation, urbanisation, fiscal stress and a recent history of territorial upscaling.     

Agencification and Corporatization in Norway 1947–2011

We explore agencification and corporatization in the Norwegian central government. While these types of organizational change have often been linked to the NPM and post-NPM doctrines of recent decades, we will extend our analysis back to the post-World War II period. The empirical data are drawn from the Norwegian State Administration Database. The main focus will be on changes along the vertical dimension, i.e., conversions of ministerial units into state agencies and from state agencies to state-owned companies, or in the other direction. A main question is the organizational dynamics of agencification and corporatization. Why have the structure and organization of government changed, how and to what degree do the pattern of change reflect global trends in NPM and post-NPM reforms, and is the central government subject to the politics of structural choice. Moreover, what is the importance of national administrative doctrines, party constellations in government, and deliberate actions of administrative policy-makers?