The application of new public management doctrines in the developing world: An exploratory study of the autonomy and control of executive agencies in Tanzania

This article examines the agencification of public service in Tanzania. This is discussed with reference to the New Public Management (NPM)‐inspired reforms of which the creation of executive agencies is one of its core features. The article attempts to understand the extent to which executive agencies in Tanzania display characteristic features of an ideal‐agency model as propagated by the NPM reform doctrines. Key features of the ideal‐agency model have been described as structural disaggregation, autonomy and contractualisation. It questions views held by many NPM‐minded reformers, such as the EU and World Bank that this model is universally applicable and can be emulated in different parts of the world. The article's assumption is that the NPM‐agency model is based on a weak empirical foundation and its universal applicability is questionable. To illustrate our arguments we confront the NPM‐agency model with the empirical data drawn from the agencification of public services in Tanzania. Findings indicate that agencies in Tanzania display hybrid characteristics in terms of their autonomy and control. Our conclusion is that the universality of NPM‐agency model is illusive. Copyright © 2010 John Wiley & Sons, Ltd.     

治理结构多元化：地方政府机构改革的新思路

通过对当代中国地方政府机构改革的一些典型个案进行分析,发现其陷入困境的深层次原因在于强调国家统一管理而导致的地方治理结构单一化。当代中国的地方治理结构单一化是历史遗传和传统体制的产物,与转轨时期纵向政府间关系中存在的压力型体制也有着内在的关联。随着改革的深入,地方治理结构单一化的弊端逐渐显现出来。但是,从美国和英国等西方发达国家的实践来看,地方治理结构多元化与国家的统一管理并不矛盾。因此,在已有的地方政府机构改革的思路基础上,实现地方治理结构多元化应该成为继续推进当代中国地方政府机构改革的新思路。     

The challenge of evaluating systemic change: the case of public management reform

At what stage of reform in the public sector does it become possible to conduct a thorough appraisal of results and how does one know when this stage has been reached? How should such an assessment be undertaken? By what methods can comprehensive and far-reaching systemic reforms be evaluated in the arena of public management during recent decades, particularly in countries like Australia, Britain and New Zealand? Most assessments have focused upon specific changes in management practice including the introduction of performance pay, the move to accrual accounting, the growth of contracting-out, the separation of policy and operations or the devolution of human resource management responsibilities. Alternatively, they have dealt with management changes in particular policy domains –such as health care, education, community services or criminal justice –or within a particular organization (department, agency or private provider). By contrast, there have been relatively few macro evaluations –comprehensive assessments of the impact of root-and-branch changes to the system. The problems of evaluation in the arena of public management are inherently complex and the way ahead is by no means clear. This article offers some broad reflections on the limitations to policy evaluation in the field of public management, and more particularly explores the obstacles confronted when assessing the consequences of systemic management reforms. It focuses on recent changes in the New Zealand public sector to illustrate the general themes because these reforms constitute one of best examples of systemic change anywhere in the world.     

Alles eine Frage des Managements?

NPM-driven agencification thoroughly changed the face of public administrations in many modern democracies. Despite high expectations and more than a decade of experience the effects of these reforms are still widely disputed. This contribution presents a neo-institutionalist model to evaluate empirically the explanatory power of those factors commonly considered as the most relevant for executives’ discretion in decision-making. Perception-data taken from the German federal administration confirm the hypothesized correlation between the distance from government and perceived discretion of agency executives. However, in-depth analysis reveals that some of the most common instruments to achieve autonomization fail to deliver.     

Majoritarian Democracy in Britain: New Labour and the Constitution

In May 1997 the British electorate voted a Labour government into office after 18 years of Conservative administration. This government has subsequently enacted a large number of constitutional reforms. However, a debate exists in relation to the degree to which, taken together, these reforms amount to a fundamental shift in the nature of British democracy. This article utilises Arend Lijphart's work on patterns of democracy in order to provide a conceptual lens through which New Labour's constitutional reforms can be analysed in terms of representing either a minor or major shift from a traditionally majoritarian to more consensus-orientated system. The article concludes that, although significant, the actual degree of reform in Britain is less radical than is commonly assumed: although New Labour is committed to far-reaching constitutional reform in principle it has been far less committed in practice.     

Trajectories in public administration reforms in European Continental countries

The aim of this article is to study key New Public Management (NPM) transformations undertaken at central level in the European Union public administrations of Germanic, Nordic and Southern European countries. Our study shows that there is no global tendency towards the same NPM model, although, within public administration models, there are strong similarities. Although some NPM initiatives have been taken as steps towards implementing these reforms, in other contexts they could have been adopted in order to ward off deeper reforms.     

Recovering the Craft of Public Administration

Public sector reform has rarely dropped off the political agenda of Western governments, yet the old craft skills of traditional public administration remain of paramount importance. The pendulum has swung too far toward the new and the fashionable reforms associated with New Public Management and the New Public Governance. It needs to swing back toward bureaucracy and the traditional skills of bureaucrats as part of the repertoire of governing. This article discusses the skills of counseling, stewardship, practical wisdom, probity, judgment, diplomacy, and political nous. Although these skills are of wide relevance, the article focuses on their relevance in Australia, Britain, Canada, and New Zealand. It concludes that the next bout of reforms needs to recover the traditional craft skills. It is not a question of traditional skills versus the new skills of New Public Management or New Public Governance; it is a question of what works, of what skills fit in a particular context.     

“新公共管理运动”的困境与转型——新西兰公共部门改革的反思及参鉴

新西兰公共部门改革是"新公共管理运动"的先锋,作为"改革实验室"和"政策创新者",因其彻底性、持续性及成效性被誉为"改革的典范"。然而近年来,西方公共管理学界提出了若干质疑,甚至认为"新公共管理运动已经死亡"。本文在考察新西兰公共部门改革实践的基础上,对实践模式的局限性及时代转换的压力两方面的批判性反思进行了梳理和分析:其"公平"与"公共"价值已经失落?是"经济学帝国"的扩张?还是"新泰勒主义"的表现?亦或是随着改革主题的衰落,数字时代治理的来临。对这一改革的实践发掘和理论反思对于当前我国政府职能转换与行政改革具有重要的参鉴价值:首先,推进改革的政府需要具备必要的能力基础;公共部门改革的核心命题是转变理念,优化政府职能,提高政府的效率和效能;而改革能否顺利推进,取决于广大民众和政府之间的深入互动;此外,改革需要尊重地方政府的主动性,充分发挥其作用。     

The role of agencification in achieving value‐for‐money in public spending

Agencification has been pursued globally under the promise of increasing public administration performance. In spite of ample theoretical arguments, the empirical evidence on the causal link between agencification and performance remains scarce and methodologically contested. We contribute to this debate by empirically testing the impacts of agencification across Germany, Spain, and the United Kingdom on value‐for‐money, competitiveness, and timeliness during the period 2006–2016. We use unique administrative datasets, enabling objective and granular measurements of reforms and their effects, employing quasi‐experimental methods. Findings suggest heterogeneous effects both across countries and outcomes. On average, value‐for‐money improves by 2.8% or 1.7 billion EUR over a decade, while outputs and processes change only marginally. Recently agencified organizations barely improve their performance, while older agencies achieve substantial improvements. The three countries' heterogeneous administrative contexts play a critical role as mediating factors, with the biggest changes occurring in higher new public management take‐up countries.     

Performance and Accountability: Budget Reform in New Zealand

Since 1984, New Zealand has made major changes in public sector management. This article describes the perceived problems with the previous New Zealand system and discusses the reforms designed to address these problems. The changes attempt to increase efficiency by: (1) separating commercial functions from other government operations; (2) strengthening lines of ministerial and executive accountability; and (3) designing budget and financial management systems to improve measurement of public sector performance. This last reform includes shifting from an input to an output-based system, changing from cash to accrual accounting, and creating different forms of appropriations for different types of government activities. While it is too early to assess whether the reforms are successful, we note potential problems.     

Evolutions and Limits of New Public Management—Inspired Budgeting Practices in Italian Local Governments

In Italy, New Public Management (NPM)‐inspired reforms have been mostly legislation‐driven. For Italian Local Governments (LGs), one of the most significant reforms was the introduction, in 1995, of an “Executive Management Plan” (EMP). The EMP has been interpreted and applied by Italian LGs differently across space and over time. Some LGs have introduced it only formally. Others have interpreted it as a tool to define individual managers's spending authorizations. Only some have viewed it as a building block of a wider management control system. Over time, LGs have since been making continuous changes to their budgeting systems, without yet reaching a new steady state.     

Vanuatu: The evolution of the administrative and political context of decentralization

Local government came late to Vanuatu (formerly the New Hebrides) and even then was more a response to external events than a reflection of community interests. The first local council experiment, from 1957 to 1958, failed because of rivalry between the colonial powers, Britain and France. Subsequently national political developments set up additional obstacles to the successful functioning of local government. Political conflicts at the national level, reflecting the divisions created by the Anglo-French condominium, delayed implementation and undermined the administrative viability and democratic quality of local councils. Popular support for and trust in local government has not developed. A system created in haste and altered to serve the interests of competing national elites has not been able to adapt to the needs of local communities. A viable system of decentralization requires a degree of national consensus to be combined with local involvement in planning and implementation.     

Reshaping the State: Administrative Reform and New Public Management in France

This essay examines the administrative reform process in France since the late 1980s. The key reforms undertaken during this period have sought to delegate greater managerial autonomy to the ministerial field-service level. We undertook semistructured interviews with officials in the field services of three French ministries (Education, Agriculture, and Infrastructure) in the Champagne-Ardennes region, as well as with members of the wider policy communities. The capacity of the field services to adopt a proactive approach to management reform depended on five key variables: internal organizational dynamics; the attitude of the central services to mesolevel autonomy; the degree of institutional receptivity to change; the type of service delivery, and the extent of penetration in local networks. The Infrastructure Ministry was more receptive to management change than either Education or (especially) Agriculture, a receptivity that reflects the institutional diversity of the French administrative system, and that supports new institutionalist arguments. The essay rejects straightforward convergence to the New Policy Management norm. Changes in public management norms require either endogenous discursive shifts or else need to be interpreted in terms of domestic registers that are acceptable or understandable to those charged with implementing reform.     

Whither the New Zealand Experiment: Thermidorean Reaction or Rediscovering the Importance of Capacity - Some views from New Zealand

To trace the main trajectory of New Zealand's public management reforms, let us take some recent assessments from two Prime Ministers ‐ one who initiated the reforms, the other who inherited them.

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Reinventing the Governance of Public Finances in Remote Indigenous Australia

The economies of remote Indigenous settlements are dominated by public finances. The current system of governing public finance is highly saturated, fragmented and centralised, and this has a corrosive effect on local governance capability. The political accountability of leaders to their constituents is weakened in favour of an administrative accountability ‘upwards’ to higher authorities. New Public Management reforms have promoted administrative deconcentration, over political devolution, and this has been accompanied by an influx of public servants, Non‐Government Organisations (NGOs) and private contractors, and a decline in Indigenous organisations and local government. The end result in many settlements is a marked disengagement of Indigenous people in their own governance. There is evidence of considerable political capabilities existing within local government electorates. Decentralised financing arrangements can be used to catalyse these capabilities and then address deficits in administrative and technical performance.     

Health Care Reform in Britain and Germany: Recasting the Political Bargain with the Medical Profession

Health care systems in the postwar period have been governed by political bargains between the state and the medical profession that have delinzated their respective powers and jurisdictions. Recent health care cost containment reforms in Britain and Germany are altering these bargains, and thereby challenge the prerogatives and autonomy of the medical profession in health policy formulation and in administration of the health care systems. But these challenges to doctors' power and autonomy vary between the two countries. Britain's 1989 “internal market” reforms attack the corporatist bargain with physicians by introducing market mechanisms into the National Health Service and, at the same time, strengthening central state control of the health care system. In Germany, on the other hand, the government's 1992 reforms only partially breached the corporatist bargain with doctors in order to strengthen rather than destroy this governance arrangement. The government has tried to curb what it views as excessive power of doctors while still allowing them a significant degree of corporatist self-governance. The reform efforts in both countries highlight some of the problems with different governance arrangements in health care systems and, more specifically, the difficulties associated with a market in health care.     

Informelle Parteistrukturen und institutioneller Wandel: Japanische Erfahrungen nach den politischen Reformen des Jahres 1994

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A “third way” in welfare reform? Evidence from the United Kingdom

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Decentralisation in France: new citizenship or restructuring hegemony?

Abstract. The recent decentralist reforms in France are generally regarded as a major change with important political consequences. This paper highlights some of the historical processes leading to the reforms, showing the competing political dynamisms of both the Left and the Right in France which helps us to understand the apparent ambiguity of the reforms. It continues with a discussion of the reforms in terms of the stakes in local politics, urban structures and class relations in France, and then reviews the changes which have taken place in local politics and policies, and concludes by assessing the impacts of the changes for local democracy.