National security and domestic policy-making: the similarities and the critical differences

This analysis focuses on the discussion of whether (and how) national security and domestic policy-making processes are similar and/or different. Though many similarities are evident, it is the contention of this article that there are critical differences between national security and domestic policy-making that fundamentally affect the output from each of them. In addition, it is essential that public administrators develop a fuller understanding of national security policy-making processes since these processes do have theoretical, practical, and organizational impacts on institutional effectiveness, democratic processes, and governmental productivity. Let's remember that in the immediate post-Vietnam period many of us in the public management sectors--federal, state, and local-- dreamed of vast amounts of money being mainstreamed into the domestic coffers. Today that expectation is called the “peace dividend”. Little did we understand how much policy-making sophistication was embedded in the DOD. Therefore, as we move into the 1990s, this analysis reminds public administrators of their responsibilities to understand the national security arena in order to detect both the unique features as well as the broader generalizations attending this microcosm of public policy-making. All of us in public administration must make certain that this fertile laboratory of public policy is researched and investigated so as to ensure that the proper policy trade-offs are made in the 1990s.     

Economic policy elites and democratization

Is the authoritarian potential of policy elites a mortal threat to the consolidation of democracy in Latin America? This article suggests that in the context of democratic transitions, significant variations may exist in the performance of technocratic roles. In most countries in the region, elected governments faced the crisis of the 1980s by retaining markedly technocratic and exclusionary styles of policy-making. In Chile, a highly technocratic form of authoritarianism was succeeded by a novel pattern of pragmatic cooperation between technical and political elites. Democratic institutions were reestablished while a strong economic team enforced coherence and continuity in economic policy. Historical and institutional factors are used to show that Chile may now be nearer the democratic pole than other “hybrid” democratic-authoritarian regimes in the region.     

Exorcising the ghost of the politics-administration dichotomy: an institutional theory of administration policy making

This article takes implementation theory one critical step further. It argues that administrative policy making is a separate, distinguishable process, not a stage in or component of the legislative policy-making process. In addition, it argues that the institutional setting for policy making has a major influence on policy ideas, choices, and actions. Administrative agencies form a distinct institutional setting for policy politics, and setting influences policy outcomes. The implications of the institutional perspective for understanding policy making, policy analysis, and the legitimacy of public organizations are examined.

The ghost of the politics-administration dichotomy haunts implementation theory. Although numerous scholars have declared the dichotomy dead,⁽¹⁾ administrative policy making is still seen as a component or step in the policy process that is dominated by elected officials. For example, Kelman recently examined the different institutional settings of policy making.⁽²⁾ Elected officials, in his view, are and should remain the primary source of policy ideas and choices while administrators remain responsible for translating these ideas and choices into practice. Other scholars underscore the lack of effective control by legislators and elected executives. But even those who acknowledge administrative initiative and autonomy see administrators as servants, however weak their masters.

This article takes implementation theory one critical step farther. It argues that administrative policy making is a separate, distinguishable process—not merely a stage in or component of legislative policy making. Policies can and do originate in administrative agencies. These innovations gather supporters and critics, are tested and refined, and can become part of the routine with little, if any, involvement by elected officials or political appointees. Legislation and executive orders commonly ratify existing administrative policies rather than initiate administrative involvement.

In addition, the institutional setting for policy making has a major influence on policy ideas, choices, and actions. Administrative agencies form a distinct institutional setting for policy politics. The institutional setting, it is argued, influences policy outcomes. Administrative policy making is not, however, an entirely discrete process. It intersects with legislative policy making at important and predictable points. The two policy processes, legislative and administrative, are loosely and variably coupled.⁽³⁾ The central distinction is that administrative policy making is dominated by the ideas, norms, routines, and choices of nonelected public employees, whereas legislative policy making is dominated by the perspectives of elected officials. Administrative policy making can occur in the bureaucracies of the President or of Congress.

The argument that these two processes—legislative and administrative—are distinct does not, however, deny their essential overlap. The overlap between these two fundamentally different policy settings has fostered the delusion that there is only one policy setting with legislative and administrative components. Clearly elected officials influence administrative policy making, and, just as clearly, administrators influence legislative policy making.⁽⁴⁾ Nevertheless, their interaction remains obscure without a clearer perception of the profound differences between the two settings. As stated, the importance of administrative policy making seems obvious and uncontroversial, but its implications are strongly resisted.⁽⁵⁾

Public administration and implementation theories have not adequately recognized the importance of administrative policy making in modem welfare states.⁽⁶⁾ Before more fully developing these ideas, four examples of administrative policy making are briefly reviewed.     

The policy adoption-implementation spiral

The “Policy Adoption-Implementation Spiral” is an exploration of the policy-making process that begins at the national level and proceeds through the labyrinth of administrative interpretations, court decisions, and judicial decrees before it is finally implemented at the state level. This analysis is based on the premise that policy adoption and policy implementation are not two separate steps in the policy-making process. The adoption/implementation process may be more clearly thought of as a continually narrowing spiral with each inward band of the spiral representing a further specification, refine- ment, clarification, or interpretation of a piece of public policy.

Equal Employment Opportunity policy is the content area used in this analysis. A case study is used which follows EEO policy from the National level down to its implementation in the area of employment opportunities for state jobs in the State of Alabama.     

The administrative staff college at henley-on-thames

An analysis of the administrative staff concept approach to management education in England as exemplified in the General Management Course of and Administrative Staff College at Henley-on-Thames, which the author attended as a “staff observer.” The philosophy, objectives and learning methods that have made the College an outstanding example of successful overseas management training are explained and, to the extent possible, evaluated.     

Administrative Traditions and Policy Change: When Policy Paradigms Matter. The Case of Italian Administrative Reform During the 1990s

In recent years a growing number of scholars have developed cognitive and ideational theoretical frameworks for the analysis of policy-making processes: their underlying belief is that ideas (conceived as beliefs, causal theories and paradigms) really do matter. The concept of policy paradigm has been particularly useful in studying both the contents and dynamics of policy change. The present paper takes this concept, partially reformulates Hall's definition in terms of the distinction between the hegemonic and dominant paradigm, and then uses it to come to terms with the contents and dynamics of the Italian administrative reforms implemented during the 1990s. Mixing the conceptual lenses offered by the ideational and cultural path taken in the field of public policy and by historical neo-institutionalism, this article attempts to explain the Italian trajectory, and to underline how normative and cognitive elements represent an important influence on the 'design' and 'strategy' of policy change. Our analysis of the consistency of the reformers' documents and policy strategy shows that, despite their claims, the contents and strategy of reform do not represent a paradigmatic about-turn, but constitute an evolutionary adaptation to external pressures imposed by the hegemonic administrative paradigm.     

Property,power, and the presidency: ownership policy reform and Russian executive–legislative relations, 1990–1999

This article asks how new rules of political conduct are established in a country attempting political transformation and sweeping economic change. Based on a close analysis of the conflict over property policy and its effect on Russian executive–legislative relations in the 1990s, the study argues that regardless of formal distributions of power, the real allocation of policy-making authority is shaped in struggles over substantive policy issues. Those arenas, especially during the first years after the fall of an authoritarian regime, can function as “political classrooms” in which leaders either adopt or reject such practices as compromise and negotiation.     

Injured but Not Yet Dead: A Bottom-Up Perspective on the Swedish Governmental Commissions

This article analyzes the recurrent “erosion thesis” in the governance literature, arguing that bureaucratic or procedural public-sector institutions have come to play a less significant role in public-policy formation. Evidence from the Swedish policy-making institutions referred to as “governmental commissions” and adoption of the perspective of interest organizations support the claim. Using various theories of institutional change, I show that increased government control has reduced the influence of governmental commissions on policy, but not eliminated the belief held by interest organizations that the commissions are legitimate institutions.     

Reconsidering Women’s Empowerment: the Contradictory Effects of Microfinance for Guatemalan Women

In light of changing global trends that connect women’s empowerment and development, this paper extends debates by exploring how projects aimed at empowering women in the Global South intertwine with diverse women’s lived realities in ways that complicate assessments of “success” or “failure.” The article begins by analyzing the incorporation of the concept of empowerment into mainstream development, demonstrating that the conceptual fuzziness of empowerment has allowed it to be associated with vastly different development strategies: some have interpreted it narrowly to promote self-help strategies whereas others have interpreted it broadly to promote structural change. The former has targeted women with “choice-enhancing” resources that are thought to have spillover effects; the latter tends to adopt a more holistic approach. In order to explore how these contrasting strategies affect women’s empowerment experiences and outcomes on the ground, this article then draws on comparative ethnographies of two microfinance non-governmental organizations (NGOs) that are emblematic of these diverging approaches. It finds that despite their differences, both spillover and holistic approaches lead to diverse and contradictory experiences that defy easy classification as “empowering” or “disempowering.” This finding reveals the advantages and limitations of relying on the concept of empowerment for evaluating development outcomes and raises questions about our ability to generalize about the effects of the varying approaches encompassed under the current feminization of policy. The analysis also suggests that we should adjust our understanding of women’s agency to include the agency women exercise when they transform, challenge, or reject empowerment projects themselves.     

Reconciling Expert Advice and Community Opinion in a Local Government Strategic Planning Process

This article proposes that the eventual outcomes of local government strategic policy deliberations can often reflect the interplay between “expert” administrative staff, democratically elected politicians, and the community they jointly serve. A multi-site case study approach, to examine the generation of local government strategy related to a niche economic activity concludes that broadly conceptualized opinion congruence can sometimes be threatened by substantial pockets of stakeholder vested interest. As such, “expert” and “political” opinion reflects a caution based on both historical experience and political expediency; while community opinion displays an optimism based on eager anticipation of an unknown future.     

NOT SO ‘ARM'S LENGTH’: REINTERPRETING AGENCIES IN UK CENTRAL GOVERNMENT

Administrative decentralization to government agencies (so‐called ‘agencification’) has attracted much attention in recent years, increasingly for its longevity or evolution after the ‘high’ managerialism of the 1980s, and largely through a neo‐positivist epistemology. Drawing on techniques of narrative and discourse analysis, and a model of incremental ideational change, this article identifies the necessity of supplementing those existing large‐N analyses of agencification's expansion and decline with qualitative attention to the endurance of policy meaning. It demonstrates how the original foundations of managerialism, civil service empowerment and decentralization from the UK's seminal ‘Next Steps’ agency programme are eschewed in contemporary reform discourse, where agencification is instead advocated as centralized, politically proximate and departmentalized governance. This substantial reinterpretation of the arm's‐length concept not only challenges existing claims of continuity in UK administrative policy, but also demonstrates the utility of interpretive methods for exploring longevity in public management more widely.     

When Do National Administrations Adapt to EU Policies? Variation in Denmark and Greece

This article joins the Europeanization studies and examines the administrative adaptation to Common Agricultural Policy (CAP), a highly institutionalized and regulated policy, in two small older member states, Denmark and Greece. The findings demonstrate variation in administrative adaptation. In Denmark, both formal and informal administrative structures adapt to CAP, while in Greece administrative adaptation is limited to formal structures. This variation is attributed to two dimensions of the domestic institutional and organizational settings, namely “centralization” and “professionalism.” The comparative analysis provides an in-depth understanding of the administrative differences between North and South—a cleavage that became prominent during the Eurozone crisis.     

Legislative Participation in Budgetary Systems: Is there Evidence of Convergence?

Concepts such as lesson-drawing, policy diffusion, policy transfer and, more recently, “isomorphic mimicry” have been used to suggest that, over time, administrative practices, policies and governance systems across countries are converging. Three different sources of data are used to examine the extent of convergence in the roles of legislatures in budget processes. Taken together, there is very limited evidence of convergence despite the efforts of entities such as the International Budget Partnership or and the Organization of Economic Cooperation and Development.     

Transforming Administrative Policy

Administrative policies and practices may evolve and change slowly and incrementally or they may be transformed intentionally. Intentional efforts to change administrative policy by transforming the structure, processes, or personnel of public sector organizations define an active administrative policy. Ideally, an active administrative policy takes as given that the organizational form to be used is open to choice, that administrative goals are clear, that a tight coupling exists between ends and means, that different organizational forms have different effects, and that there are criteria that may be used to assess those effects. This article focuses on the fulfilment of these preconditions in the three national contexts – Norway, Sweden and the United States of America – in order to determine the relevance of a transformative perspective for understanding the process of administrative change. We examine what impact constraints like polity features, historical-institutional traditions and external pressure, particularly through popular international administrative doctrines like New Public Management ideas and financial crises, have on the possibilities to enhance an active national administrative policy.     

E-Government for Lowering Administrative Burden: An Empirical Research on European Rural Businesses

Administrative burden reduction is in the policy agenda in European countries and international organizations. The objectives of this article are to measure administrative burden of rural businesses in three European case studies and to assess the use of semantic electronic government services for its reduction. The main findings are that rural businesses do not perceive the administrative burden significance for entrepreneurship; public administration could implement semantic electronic government services to reduce rural businesses’ administrative burden; and future administrative burden reduction policies should take into account the type and location of businesses to achieve an efficient business environment.     

“MORE COLONIAL AGAIN?”—THE POST-1997 CULTURE OF HONG KONG'S GOVERNING ELITE[1]

The remarkable smoothness of Hong Kong's handover from liberal democratic Britain to communist China was not forecast because commentators underestimated the role of Administrative Officers (AOs) as the governing elite under both sovereigns. This article is based on a survey of post-1997 AO culture by an ex-insider and finds subtle changes under the stable surface: a reinforced paternalism, more “Confucian” but also “more colonial again;” less accountability downwards (“just as dedicated to our jobs, but forgetting what they are for”); more caution and conformity upwards. Unexpectedly, the new sovereign sems to interfere less than the old, but benefits from lower expectations and favourably double standards, whereas Hong Kong's government feels hypercriticised. Against the embarrassing reality of postcolonial governance elsewhere, the success of Hong Kong's continuing colonial system should not be ignored just because it does not fit Western democratic models.     

POLICY TERMINATION: THE CASE OF TERM LIMITS IN MICHIGAN

This article tests a theoretical framework by examining a case study of term limits in the Michigan legislature. The Michigan case tests the “fit” of Daniels's seven generalizations about policy and organizational termination. The goal of this paper is to extend the discussion of termination policy to the issue of term limits and formulate an agenda for future research that can develop a better understanding of term limits based on the concept of termination.     

Policy Transfer as a “Contested” Process

Policy transfer studies have commonly assumed that changes to policies borrowed from abroad are either the result of deliberate efforts to adjust/translate them to fit its receiving environment, or an adaptive response to the cultural and institutional circumstances of the latter. In introducing the concept of “contested policy transfer,” this article will argue that differences between the “original model” and the borrowed one might be actually due to the series of conflicts and negotiations which take place among key bureaucratic actors at the “importer” jurisdiction. The article will illustrate the concept by analyzing the transfer of the Chilean “Programa de Mejoramiento de la Gestión” to the Mexican government, a process which took place between 2005 and 2010.     

Abandoning Armed Resistance? The Ulster Volunteer Force as a Case Study of Strategic Terrorism in Northern Ireland

This article explores the Ulster Volunteer Force's (UVF) decision in May 2007 to abandon its campaign of “armed resistance” and pursue “a non-military, civilianized, role” in Northern Ireland. It does so by analyzing the UVF's actions in light of the academic literature on strategic terrorism. The central argument advanced in the article is that the UVF's decision to put its weapons “beyond reach” and re-structure its organization along civilian lines is (a) internally consistent with its stated policy of countering “violent nationalism,” (b) symptomatic of the transformation in the sociopolitical context since the 1994 paramilitary cease-fires, and (c) the logical outworking of the group's lack of popular legitimacy among its core Protestant working-class support-base. The article concludes with an assessment of the risks and possible dividends that the end of UVF terrorism holds for the Northern Ireland peace process.     

Policy Relations and Policy Subsystems: Financial Policy in Hong Kong and Singapore

Existing studies of Hong Kong’s and Singapore’s success as leading Asian international financial centers (IFCs) have largely focused on economic structural factors at the neglect of political economic contextual variables. Taking a policy subsystems approach and based on extensive field research, this article attempts to address this shortcoming by conceptualizing the “policy relations” that exist between state, industry, and other non-state actors in the two IFCs and delineating the “division of policy roles” among these actors. In the process, this article contributes toward the existing IFC literature and conceptualizes the sociopolitical relations that exist among financial sector actors.