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.     

ELITE ETHNOGRAPHIES: POTENTIAL,PITFALLS AND PROSPECTS FOR GETTING ‘UP CLOSE AND PERSONAL’

This article celebrates Rod Rhodes' use of ethnography to study political elites ‘up close and personal’. Initially Rhodes' work is contextualized within the development of political ethnography more generally, before his ethnographies of ‘Everyday life in a Ministry’ are reviewed, illustrating the potential of ethnography to research policy‐making elites. This review highlights epistemological and ontological questions which link to criticism of Rhodes' work as taking an anti‐foundational stance. In looking at future prospects for ethnography in governance settings, this article argues that researchers building on Rhodes' scholarship can choose whether to use ethnography as a ‘method’ or an ‘interpretive methodology’. In concluding, the case is made for a ‘constructivist modern empiricism’ which utilizes the ethnographic method alongside other research methods as being most useful for public policy and administration scholarship aiming to be practically useful for understanding either the processes of public policy‐making or its impact.     

Fear of a black planet: anarchy anxieties and postcolonial travel to Africa

Western travel to Africa has historically involved the construction and consumption of African otherness. In the postcolonial era this is most clearly evident in Western tourism to the continent, where Africa is frequently marketed as an exoticised destination to see and consume both ‘nature’ and ‘native’. The Western tourist gaze often requires fixing Africans, both in a spatial site (‘village’) and a temporal site (‘tradition’). Africans on the move (both spatially and temporally) are often seen as threatening to the Western‐established images of Africa, which are grounded in a long‐standing fear of ‘unorded’ and ‘chaotic’ African space. After 11 September and the USA's ‘war on terror’ retributive response, the political implications of these fears are evinced in the writings of Robert Kaplan and his popular ‘coming anarchy’ thesis. The article concludes with a critique of Kaplan's work and a discussion of its implications for Africa and African international relations.     

The intensive agricultural districts programme in India: A new evaluation

The Intensive Agriculture Districts Programme (IA DP) was a major component of the Indian Government's desire to launch a ‘new strategy’ for agricultural development in the nineteen‐sixties. Prior evaluations have been incomplete and flawed by an inappropriate interpretation of the evidence. This paper utilizes more recent data and uses the total factor productivity approach to evaluate gains from the programme. A feature of the analysis is the concept of ‘economic slack¹ existing in these districts at the beginning of the programme. It concludes that the programme induced a very significant increase in the use of ‘modem’ inputs and hence of agricultural production but did not result in a major gain in ‘real’ total factor productivity.     

‘TO BE,BUT NOT TO BE SEEN’: EXPLORING THE IMPACT OF INTERNATIONAL CIVIL SERVANTS

International civil servants (ICS) are largely excluded from the analysis of International Organizations (IOs) because states are assumed to be the determining force in shaping their behaviour. Even principal‐agent and constructivist analyses often treat an IO’s staff as a unit and are concerned primarily with states’ capacities to control IOs. Examining the opportunities of ICS, rather than the choices of states, provides a better means of understanding the capacities of ICS to contribute to the operation of IOs, and especially when they participate in multilateral negotiations. We suggest that structure, competence, legitimacy and culture provide a framework for analysing ICS variable capacity. We use the Secretariat of the WTO, known as a ‘member‐driven organization’, to illustrate how ICS can play a critical role in achieving the IO’s objectives. A word on our title. It comes from Esse, non videri in the original, as quoted by a director at the WTO in an interview in April 2003.     

WEBER AND KAFKA: THE RATIONAL AND THE ENIGMATIC BUREAUCRACY

Max Weber's and Franz Kafka's respective understandings of bureaucracy are as different as night and day. Yet, Kafka's novel The Castle is best read with Max Weber at hand. In fact, Kafka relates systematically to all the dimensions in Weber's ideal type of bureaucracy and give us a much‐contemplated parody, almost a counter‐punctual ideal type, based on four key observations: bureaucratic excesses unfold in time and space; a ‘no error’ ideology generates inescapable dilemmas; inscrutability is a life condition in bureaucracy; civil servants end up walking on the spot, just like the figures in Escher's painting: Ascending and Descending. Nevertheless, Weber and Kafka can both be right. While Kafka looks at the bureaucratic phenomenon through persons who are marginalized, Weber's perspective is historic‐comparative and top‐down. Are the observations of the one more correct than the other? The question is meaningless. As two opposite poles, Weber and Kafka ‘magnetize’ each other.     

ENTREPRENEURIAL EXIT RESPONSE TO DISSATISFACTION WITH PUBLIC SERVICES

Following Hirschman's seminal Exit, Voice and Loyalty, an exit response to dissatisfaction with public services is often portrayed as a replacement of one service provider with another, depending on the availability of alternatives. This article enriches Hirschman's typology by conceptualising an ‘entrepreneurial exit' response referring to citizens who exit proactively by creating a viable alternative themselves. The practical aspects of entrepreneurial exit are analysed based on five manifestations: planned homebirth, homeschooling, urban self‐defence groups, children with disabilities, and claim clubs in the American West. Whereas citizens' roles within the public service sphere are referred to as ‘participators’, ‘customers’, and ‘co‐producers', entrepreneurial exit indicates the entrepreneurial role citizens may play. Similar to the additional forms of exit, entrepreneurial exit becomes meaningful if the newly introduced form of service gains social acceptance, especially when it reflects policy non‐compliance within which laymen are transformed into providers of professional services.     

A genealogy of EU discourses and practices of deliberative governance: Beyond states and markets?

The article offers a genealogy of ‘deliberative governance’ in the EU—an important contemporary discourse and practice of ‘throughput legitimacy’ within that setting. It focuses on three key episodes: the late 1990s ‘Governance’ reports of the European Commission's in‐house think‐tank, the Forward Studies Unit (FSU); the Commission's 2001 White Paper on Governance; and the EU's ‘Open Method of Coordination’, which emerged in the 1990s and was widely studied in the early and mid‐2000s. The genealogy serves to highlight the particular intellectual lineages and political contingencies associated with such a discourse and in so doing points to its exclusive potential in both theory and practice. In particular, the article argues that it excludes, on the one hand, those championing the enduring sociological and normative importance of the nation state and an associated representative majoritarianism and, on the other hand, those (excessively) critical of a functionalist, neoliberal, market‐making status quo.     

The impact of scale on management structures and processes

This paper advances the conjecture that the shift to a direct election of mayors in Israel, a most significant step towards recognising local authorities as political entities in their own right, has prevented further progress in the same direction. Hirschman's ‘getting stuck syndrome’ is used here to explore this paradox. Since a highly centralised system is not compatible with a ‘strong mayor system’, there developed an ingenious scheme — ’de facto decentralisation’ — a peculiar blend of formal ‘agency’ relationship, informal ‘partnership’ and ‘grey‐area’ autonomy. This scheme persists apparently because it is well suited to a world of ambiguous and conflicting imperatives.     

REPRESENTING EUROPE: THE EMERGING ‘CULTURE’ OF EU DIPLOMACY

Debate over ‘loyalty transfer’ in the European Union (EU) centres on the assumption that elite socialisation and ‘spillover’ processes lead inevitably to changes in the behaviour and identities of European officials. This article interrogates that notion by exploring how officials in the EU external delegations represent Europe. The Lisbon Treaty (2009) will transform the delegations in ways that are emblematic of the EU's evolution as a global actor. Drawing on empirical insights we examine the way EU diplomats embody the European idea and understand their role in promoting ‘the European Union interests and values around the world’. At a moment of historic transition, the article highlights some of the cultural dynamics currently transforming European diplomacy and how officials conceptualize their work of ‘delivering EU external relations policy’. We argue that Europeanization and loyalty transfer are complicated by inter‐institutional rivalries that raise problematic questions over who can best claim to ‘speak for Europe’.     

From ‘Constructing Socialism’ to a ‘Socialist-oriented Market Economy’ in Contemporary Vietnam: A Critique of Ideologies

Abstract

In power, the Vietnamese Communist Party has experienced three ‘moments’ of growth, each with some differences of detail and of meanings: ‘traditional communism’; the transition from a planned to a market economy in the 1980s; and, since 1992, a ‘socialist-oriented market economy’. For each, the article discusses the ideologically defined nature of change; intentionality—‘how growth was to happen’; and the quantitative data used. It suggests that critiques throughout the period have engaged with the intentionality issue: in the first moment, by isolating the socialist relations of production within socialist construction as the cause of difficulties; more recently, by engaging with the lack of effective policy despite contemporary ideology's unreliable belief in policy as key to growth.     

Marx’s critical political economy, ‘Marxist economics’ and actually occurring revolutions against capitalism

Abstract

Most revolutions against capitalism have occurred in ‘backward’ and Third World societies, and they have divided and disarrayed Marxisms in the West. One key reason, this paper argues, is intellectual. When, long ago, Marxists surrendered to the bourgeois challenge to Marx – neoclassical economics – developing, in place of Marx’s critical political economy, a ‘Marxist economics’, they lost touch with Marx’s analysis of capitalism as contradictory value production. That analysis could illuminate how capitalism’s contradictions drive its imperialist expansionism and how and why resistance to it must, equally necessarily, take national forms. As a result, major currents of Marxism in the West either have paid attention to imperialism and anti-imperialist resistance but without Marx’s analysis of capitalism as contradictory value production or have insisted that their (mistaken) conception of Marx’s analysis implies that capitalism has no necessary connection with imperialism. Neither tradition can actually develop Marxism to comprehend the actual historical record of revolutions since Marx’s time. Neither can inform new mobilisations against capitalism, whether in or outside its homelands. It is high time we return to Marx’s analysis of capitalism as value production and develop it.     

COMPARING BUSH–CHENEY AND CLINTON–GORE PERFORMANCE MANAGEMENT STRATEGIES: ARE THEY MORE ALIKE THAN DIFFERENT?

Successful performance management strategies are intrinsically linked to the political environment in which public policy‐making occurs. Since the mid‐1990s, many governments have re‐examined how to simultaneously reduce costs, increase performance and achieve results. Public agencies are experimenting with performance measurement and management systems designed to meet public policy goals and respond to citizen demands. Various reform models have been proposed and public administrators now expend considerable time, effort and resources exchanging ‘best practices’, finding ‘best value’, and ‘rethinking’ government operations. Although equally important, less effort has been devoted to performance management (PM) within increasingly complex, ideologically charged and politicized decision‐making environments. Despite significant increases in productivity, more theoretical and empirical research is needed to assist public managers in applying private market‐based alternatives to public service delivery structures. This article compares the PM initiatives of the Clinton–Gore Administration in the United States, known as the National Performance Review (NPR), with President Bush‘s Presidential Management Agenda (PMA). Following the comparison, a theory‐based research agenda is proposed to determine which of many approaches best ‘fits’ the varied and often contradictory systems for delivering public services in a decentralized governance system.     

THE CENTRE STRIKES BACK: META‐GOVERNANCE,DELEGATION, AND THE CORE EXECUTIVE IN THE UNITED KINGDOM, 2010–14

A growing literature on ‘agencification’, ‘quangocratization’, and the ‘autonomization’ of the state has highlighted a coordination dilemma in contemporary public governance whereby governments rely on delegated governance but are frustrated by the lack of control that arises from such structures. In the run‐up to the 2010 General Election in the United Kingdom this coordination dilemma was prominent as the capacity of the Cabinet Office to exert control over arm's‐length bodies, either directly or indirectly, received intense criticism. This article presents the findings of the first detailed research project to examine the subsequent Coalition Government's approach to this dilemma. It argues that in relation to the governance of public bodies, the role and capacity of the Cabinet Office has been transformed. In mapping this development the article explores the implications of the centre striking back in the context of ‘post‐New Public Management’ reforms.     

Democratising,internationalising, and globalising: A collage of blurred images

This article emphasises the relevance and importance of Gayatri Spivak's work for those of us involved in the field of development (as academics, researchers or development workers). Spivak underlines how our representations, especially of marginalised Third World groups, are intimately linked to our positioning (socioeconomic, gendered, cultural, geographic, historical, institutional). She therefore demands a heightened self‐reflexivity that mainstream development analysts (eg Robert Chambers), and even ‘critical’ ones (eg Escobar, Shiva), have failed to live up to. The article examines Spivak's writings to illustrate the reasons, advantages and limits of this hyper‐self‐reflexivity.     

Relative efficiencies of organized industries in India, 1949–58.

The study attempts to measure relative efficiencies (or inefficiencies) of manufacturing industries in India. Production analysis based on Cobb‐Douglas production function with explicit allowance for technological change is used for the study. Technological change is measured by alternative variables such as technological change embodied in new capital goods (measured by ‘Investment'). ‘Education’ is measured by the ratio of non‐workers to workers. ‘Experience’ is measured by output per worker cumulated over past seven years. Stepwise regression is used to estimate production functions. Consistent data for Indian industries is available for twenty‐eight industries over the ten year period (1949–58). To measure technological change over the ten year period, analysis of covariance is used. Empirical analysis shows that large differences do exist in the efficiency of input use in different industries.     

Evaluating the economic impact of a special credit programme: KIK/KMKP in Indonesia

This article discusses a study of the economic impact of Indonesia's KIK/KMKP programme of special credits for small‐scale enterprises. Our major focus is on how to measure economic impact. It discusses the concept of ‘impact’, the survey design, the statistical framework, and the practical problems of implementation, and briefly summarises the findings. We believe that our methodology generated reasonably reliable data and fundamentally sound estimates of the credit programme's direct impact on employment, output and income.     

THE REFORM OF FINANCIAL MANAGEMENT IN THE EUROPEAN COMMISSION: A PUBLIC MANAGEMENT POLICY CYCLE CASE STUDY

Since the mid‐1990s during the Santer, Prodi, and Barroso presidencies, the European Commission has experienced several public management policy cycles. Included on the Barroso Commission's (2004–2008) policy agenda was the reform of internal financial control, prompted by significant irregularities in budget execution signalled repeatedly by the European Court of Auditors (ECA) in its annual Declaration of Assurance (DAS) and Annual Reports. This led to a declared Barroso Commission strategic objective of achieving a ‘positive DAS' by 2009. The proposed solution was ‘integrated internal control’ based on an international reference point within the accounting and auditing professions. The result was a centrally co‐ordinated Commission project aiming to reform management and audit practices within both the Commission and EU member states. This article reports on the ‘positive DAS' and ‘integrated internal control’ policy cycle and explains its agenda‐setting, alternative‐specification, and decisional processes.     

Democracy and the politics of power alternation in Africa

Namibia's Nujoma, Zambia's Chiluba, Algeria's Bouteflika, Togo's Eyadema, Cameroon's Biya, Nigeria's Obasanjo, Niger's Tandja and Uganda's Museveni have all to varying degrees attempted to subvert the democratization process in their respective countries. These however are only a small selection of an increasingly similar pattern of action by incumbents in Africa. What is most troubling to democratic transitionists is a concerted effort by these leaders to curtail their fledgling democracies in the name of their continued ‘service’ to the people. This paper seeks to examine what has enabled an increasing number of African leaders to negate power alternation in favour of open-ended tenures otherwise ‘presidential careerism’. The article argues that while most of these states have been cited for embarking on some semblance of democratic rule, their rulers have utilized their weak democratic institutional structures, co-opted the elite and rallied the ‘mob’ to commit democracy ‘infanticide’.     

‘LADIES A YOUR TIME NOW!’ Erotic politics,lovers' rock and resistance in the UK

‘Lovers’ rock' is a largely overlooked genre of ‘Black British’ reggae music that emerged in London during the 1970s through Caribbean nightclubs and ‘pirate radio’ stations. Lovers’ rock was an integral part of the reggae music scene of that period. However, lovers rock became gendered as genre that appealed particularly to the romantic aspirations of black teenaged girls growing up in ‘Thatcher's Britain’. Within the political context of the dancehall scene, both lovers rock and roots reggae are seen as binary opposites of each other – lovers being ‘soft’ feminised reggae concerned with romantic love, and roots as masculinised ‘serious’ reggae concerned with black oppositional politics. Using black feminist theories on love and the erotic, this paper challenges the gendering of lovers' rock by suggesting that the genre was part of a much broader and complex political expression of love and rebellion amongst Caribbean communities in Britain. Indeed, while the gendering process is highly problematic, this paper also argues that Caribbean communities had also used the erotic and political intersection of both genres to reconfigure racist and sexist representations of their identities. As such Caribbean males and females had created their own ethic of ‘loving blackness’ as a way of restoring and validating their experiences within Britain's often hostile urban centres.