Public administrators and policy implementation--a social work perspective

Professional social workers in both macro and micro settings are vitally concerned with public policy, particularly that of social welfare policy, and its implementation. They are keenly aware of the quality and quantity of services and other end products of policy implementation. Social workers serve as public administrators and staff many public and private agencies that form the delivery system network. They are also concerned with social problem-solving as is the public administrator, and see themselves as behavior change agents. Their generalized value perspective addresses the political conflicts arising from the nature and causes of poverty and inequality, the role of government in society, and the nature and methodology of the decision-making process. Organization and administration become means to ends, not ends in themselves.

The conclusions arise that public administrators will have to assume more governmental responsibility, rather than less. This is seen as a natural evolutionary outgrowth of the need to regulate increased conflict fueled by growing interdependence and rapid societal change. While public agencies are continuing results of governmental intervention, they are condemned to operate in the midst of paradox.     

Evaluating public policy: The administrative role

If public administrators are not heavily involved from the beginning in the development of public policy, policy implementation and program evaluation may not be possible. The tasks and people needed for organizing policy change are identified and the roles of the public administrator in these efforts are discussed. This article describes three legislative efforts in which public administrators were heavily involved at the beginning stages of policy development; administrators helped to create programs that were subsequently more amenable to evaluation.     

Public administrators and policy legitimization: Policy analysis,politics and power

This article discusses the factors public administration faculty should incorporate into the curriculum in order to equip students to engage in the policy legitimization process. In order to produce leaders, public administration programs should emphasize the nature of the political system, an understanding of the legitimacy of subgovernments, the importance of coalition building and the psychological factors associated with policy choices.

Integration of policy analysis into the public administration curriculum requires that students be equipped with an in-depth understanding of both the political environment and the political process. This is true because public administrators are deeply involved in the stages of policy development, adoption, and implementation; activities which reach beyond the narrow confines of program management and into the realm of politics. Consequently, public administrators serve in a variety of capacities: as policy advocates, program champions, or as defenders of client interests. It is in these roles that public administrators move into the political arena. Policy analysis activities provide the discipline with the opportunity to move beyond an emphasis on a narrow concern with simply “managing” government and into the realm of policy choice, policy advocacy, political power and the exercise of leadership.

Public administration as a discipline, and teaching faculty in particular, face the challenge of increasing the relevance of the master's degree to policy leadership. Astrid Merget, past president of the National Association of Schools of Public Affairs and Administration, expressed this need for increased emphasis on policy leadership training quite eloquently in 1991:

“Our vision of the holder of a master's degree in our field is that of a leader, not merely a manager or an analyst. But we have not been marketing that vision.”⁽¹⁾

Merget attributes partial responsibility for the low public esteem of government service to the attitudes, teaching, and research activities of public administration faculty who have failed to link the “lofty” activities of government (environmental protection, health care, the promotion of citizen equality) with public administration. Accordingly, the academic standard of “neutrality” governing teaching and research acts as an obstacle to teaching the fundamentals of the goals of public policy. This professional commitment to neutrality places an emphasis on administrative efficiency at the expense of policy advocacy. The need, according to Merget, is to reestablish the linkage between policy formulation and policy management. Such a teaching strategy will enhance the purposefulness of public administration as a career. Failure to do so will relegate public administration programs to the continued production of governmental managers, not administrative leaders.

The integration of policy analysis into the public administration curriculum affords the discipline with the opportunity to focus on policy leadership and escape the limitation associated with an emphasis on program management. Teaching policy analysis skills cannot, and should not, be divorced from the study of politics and the exercise of political power. This is true because politics involves the struggle over the allocation of resources, and public policy is a manifestation of the outcome of that political struggle. Public policy choices reflect, to some degree, the political power of the “winners” and the relative lack of power by “losers.” The study of public policy involves the study of conflict and the exercise of power.

Teaching public administration students about the exercise of power cannot be limited to a discussion of partisan political activities. Public administrators serve in an environment steeped in the exercise of partisan and bureaucratic power.⁽²⁾ It is practitioners of public administration who formulate, modify and implement public policy choices. Such bureaucratic activity is appropriate, provided that it is legitimated by the political system. Legitimacy can be provided to public administrators only by political institutions through the political process.

Teaching public administration students about policy analysis and policy advocacy necessitates an understanding of the complexities associated with the concepts of policy legitimacy and policy legitimization.     

ADMINISTRATIVE RESPONSES TO ENVIRONMENTAL RACISM

ABSTRACT

The environmental justice movement challenges public administrators to develop appropriate administrative and policy responses to environmental racism claims. Public administration scholarship has focused little attention on claims of environmental racism and the environmental justice movement, in part as a result of a too narrow conceptualization of racism. The theoretical and empirical literature on racism would be useful in guiding research on environmental racism and contribute to developing effective administrative responses by local, state and federal government.     

How Concessional is Aid Lending?

The method used by Development Assistance Committee countries for measuring the concessionality of aid loans has remained unchanged for nearly 20 years. It was designed to measure the net cost of aid to donors not the net benefit to recipients. The discount rate used takes no account of changes in the value of the currency of the loan or of changes in prices for goods traded by recipient countries. Furthermore, it does not consider the implications of tying of aid or of policy conditionality. This paper suggests an alternative measure that shows the real net benefit of aid finance to recipients. It argues that the discount rate used by the Development Assistance Committee is too high and that changes in the value of the currency in which a loan is taken out can be important. Nevertheless, real rates of interest for developing countries remain surprisingly high despite low nominal rates due to falling prices of traded goods. This finding has implications for the future real cost of debt service to recipients.     

Teaching public policy in a public administration program

An overlooked aspect of academic concern in public administration is the realm of public policy. Policy intrudes into administration at a number of crucial points; administration influences the direction and emphasis of policy in various ways. These interrelationships warrant more attention in the training of public administrators. Regrettably, they have remained largely off-limits in the training of public administrators. Why and how we should proceed to alter this state of affairs is the essence of the symposium that follows.     

环境与国际关系：一种区域性国际公共产品的视角

后冷战时代，随着传统的军事安全地位的相对下降，全球环境问题正渗透到国际关系领域成为许多国家对外政策的一个重要方面，甚至成为国际冲突中的一个新热点。对于全球环境问题，传统经济学所提出的解决方法并不适用，因此有必要对国际政治经济学中的“国际公共产品”理论进行改造和重构，提出“环境类区域性国际公共产品”的概念。有关国家为了本地区的环境安全而联合起来共同生产和维护环境类区域性国际公共产品将成为一种必然趋势，也必将成为今后国际关系的一个基本特点。     

A classic debate revisited: The policy/administration dichotomy in tax polittcs

One of the oldest debates in political science is over the separation of policymaking from administration. The primary purpose of this paper is to resurrect the distinction as both a guide to empirical theory describing the political process and as an element in the normative debate over how that political process should ideally work. I first discuss the classic dichotomy and arguments for and against it. I then argue that tax politics can best be described as a trichotomy, in which there resides a “middle” set of actors, labelled professional policy managers, who have very important policymaking roles, but who also have many characteristics of administrators. In making these distinctions, I also outline a distinctive form of accountability that resides with each set of actors. Based on these forms of accountability, I reiterate the importance of separating and distancing “pure” administration from policymaking and political pressures. I also argue that effective policy is best insured by balancing the roles of policymakers, policy managers and administrators.     

Are civil servants really public servants? a study of bureaucratic attitudes in the U.S., brazil,and korea

The proper role of civil servants in the development of public policy has been the subject of continuous commentary and debate. In the advanced industrial democracies the operation of increasingly complex programs in government has led many commentators to warn of the danger of “technocracy”-- a condition wherein professional career administrators more fully control the direction of public policy than do elected representatives of the people. Likewise, in less developed nations there is concern over the role of public administrators in the development of policy. The charge of indifference to and disregard for public involvement and sentiment is frequently heard. Using data from a survey conducted in the U.S., Korea and Brazil, this paper examines the extent to which civil servants in each country adhere to a technocratic outlook. We find that although societies that are more economically advanced are less likely to adhere to a technocratic view, there is considerable variation within each research setting. Specifically, we find that technocratic orientations are more likely to be held by men, those who hold more materialist value orientations and those holding managerial occupations.     

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.     

Welfare Loss with Municipal Amalgamations and the Willingness-to-Pay for the Municipality Name

Functional advantages and drawbacks are commonly mentioned to rationally justify or condemn municipality amalgamations. However, many consolidation projects are resisted by local governments or citizens on the grounds that amalgamation would dampen local identity. A municipality’s name change is probably the most visible sign of the loss of community bond experienced by citizens at amalgamation time. This article aims to put a value on this loss by measuring citizen willingness to pay for their city name. This methodological approach innovates upon the literature on municipal amalgamation and place branding by exploiting the versatility of the so-called contingent valuation method (CVM). CVM confronts respondents, in a survey setting, with a hypothetical market in which a characteristic of interest is exchanged. Here the characteristic is the possibility to retain one’s city name for an amalgamated jurisdiction. The article presents the estimates provided by a survey conducted in four Swiss cities.     

Institutional Arrangements and State and Local Financial Forecasting

Abstract

The articles in this symposium present various consequences that effectively result in changes from adopted budgets during the implementation phase, which derive from institutional structure. The institutional structures referred to include such attributes as internal policy, procedural methodology, longevity in office, and reward and incentive systems related to performance outcomes

For local governments, structural influences studied include changes in leadership in the executive and legislative branches, longevity in office of budget administrators, and differences related to mayor-council vs. council-manager forms of government. Internal policies reported on cover methodology used to forecast revenues such as quantitative methods versus informed judgment, budgetary controls and spending policy related to mandated spending beyond local government control, and procedures for benchmarking within the agency as well as with peer groups and professional standards.

Consortia of governments are referenced regarding performance evaluation as is the process for gaining consensus between the executive and legislative branches, including expert outside opinion. Other influences on performance outcomes reported on are those tied to the risk-reward system built in to the institutional structure, which includes risk tolerance of the individuals who make pension fund investments.     

ASSESSMENT AND MANAGEMENT OF POLICY CONFLICT IN THE ILLINOIS RIVER WATERSHED IN OKLAHOMA: AN APPLICATION OF Q METHODOLOGY[1]

ABSTRACT

Environmental policy formulation is a difficult business under the best of circumstances. In many cases, policymaking is complicated by factual uncertainty about the likely outcomes of policy intervention and by persistent value conflicts over desired policy ends and goals. This is nowhere more true than in formulating policy to manage adverse impacts to a watershed caused by natural and human activities. In the case of the Illinois River watershed in eastern Oklahoma, controversy over whether and how economic activities in the watershed should be regulated has effectively stifled meaningful policy reforms for three decades. As part of a test of a novel watershed management policymaking protocol funded by the US Environmental Protection Agency, a Q methodological study of stakeholders' perspectives on impact concerns and impact management preferences was conducted to diagnose the conflicts that have pre-empted policy initiatives for so long. We found that the conflicts that exist are not bipolar, but orthogonal – opening the way to potential super-optimum solutions that can satisfy everyone. This study demonstrates the power of Q methodology to assess conflict and thereby suggest strategies for its resolution.     

Housing trends of the elderly: emerging policy and implications

Housing and living environment options are both one of the most pressing problem are as for the elderly and an unavoidable policy subject for public administrators. This article analyzes the topic of housing and the elderly so as to high light selected dimensions that might have implications for decision - makers in resource considerations and allocations. An opening section gives the status of how and where the elderly are now living. Six events, or environmental and policy changes, that affect the housing options of the elderly are analyzed. These events are: high mortgage rates; rent controls; condominium conversions; tax relief measures; weatherization programs; and reverse annuity mortgages. The two dominant trends that appear to shape the future housing options of the elderly are examined. The first trend is the provision of a range of alternatives in living arrangements. The creation of alternatives, also known as a continuum of living environments, includes congregate housing, share - a - home, life care or continuing care, geriatric foster care, and single room occupancy hotels. The second major trend is the increasing provision of services in the home setting. The final portion draws together the evident implications about the housing problems of the elderly for policy makers in the public management field. Implications that have community-wide ramifications are clustered as they relate to: increasing the housing supply; regulatory mechanisms; and budgetary references.     

DISCUSSION - Agricultural Policy Reform and Rural Livelihoods in Central Mexico

This contribution examines the impact of profound changes to agricultural policy implemented since 1988 on the livelihoods of Mexico's rural population. Detailed studies in four villages show that rural incomes are very unevenly distributed within communities leaving half of households in poverty. During the last decade key factors affecting village economies have been international and national, rather than specific changes to farm policy. Most changes have been to the detriment of the communities studied, but peasant households have adapted and survived, at a price. If the worst fears about the consequences of economic liberalisation have not been realised, neither have the hopes. Depressed markets for basic goods and services have limited the growth of the rural economy. Private investment and provision of services have not been stimulated.     

The threat of polluted air and the policies to control the problem in the Seoul metropolitan area

Air pollution is a serious problem in the Seoul Metropolitan area and other major urban centers in Korea. Heavy concentration of industries, a large population in excess of 11 million in high density, and an explosive growth of automobiles have contributed to air pollution in Seoul along with the neglect of environmental issues in the process of industrial and social changes. Although the official statistical data do not show that air pollution has reached a critical level, a survey data of public opinion indicates that a concern for environmental pollution is serious.

The central government of Korea has taken some major policy measures to address the environmental pollution problem. The government expenditures for environmental programs have significantly increased throughout the 1980's. The government has adopted policies to switch fuels for industrial, commercial, and domestic use from high pollution coals and heavy oil to nonpolluting natural gas. The government has adopted incentive programs to offer economic benefits to those buying electric cars and cars running on compressed natural gas or alcohol.

It is not clear how effective these policy measures will be in curbing environmental pollution. But it is clear that the choice of the citizens for a new life style which is environmentally clean is a new imperative for survival in the same way as economic development at any cost was the imperative for economic survival in the 1960's and the 1970's.     

Eight supreme court cases that have changed the face of public administration

This article examines eight recent Supreme Court decisions that have important implications for public administrators. The areas examined include public personnel policy, solid waste management, budgeting and finance, taxation, privacy, and public school education.     

Privatization in developing countries: ideal and reality

In both developed and developing countries, governments finance, produce, and distribute various goods and services. In recent years, the range of goods provided by government has extended widely, covering many goods which do not meet the purist's definition of “public” goods. As the size of the public sector has increased steadily there has been a growing concern about the effectiveness of the public sector's performance as producer. Critics of this rapid growth argue that the public provision of certain goods is inefficient and have proposed that the private sector replace many current public sector activities, that is, that services be privatized. Since Ronald Reagan took office greater privatization efforts have been pursued in the United States. Paralleling this trend has been a strong endorsement by international and bilateral donor agencies for heavier reliance on the private sector in developing countries.

However, the political, institutional, and economic environments of developing nations are markedly different from those of developed countries. It is not clear that the theories and empirical evidence purported to justify privatization in developed countries are applicable to developing countries.

In this paper we present a study of privatization using the case of Honduras. We examine the policy shift from “direct administration” to “contracting out” for three construction activities: urban upgrading for housing projects, rural primary schools, and rural roads. The purpose of our study is threefold. First, we test key hypotheses pertaining to the effectiveness of privatization, focusing on three aspects: cost, time, and quality. Second, we identify major factors which affect the performance of this privatization approach. Third, we document the impact of privatization as it influences the political and institutional settings of Honduras. Our main finding is that contracting out in Honduras has not led to the common expectations of its proponents because of institutional barriers and limited competitiveness in the market. These findings suggest that privatization can not produce goods and services efficiently without substantial reform in the market and regulatory procedures. Policy makers also need to consider carefully multiple objectives at the national level in making decisions about privatization.     

Dilemmas and Horizontal Logics: Subnational Industrial Policy in Spain and Brazil

Scholars of "decentralization" have recently revealed the importance of subnational industrial policy in responding to the challenges of globalization. But these treatments tend to make endemic assumptions about either the universal efficiency or inefficiency of decentralization. This article argues that subnational industrial policy performance is politically contingent and develops national patterns that are more composite than endemic. Political contingency is analyzed in terms of subnational incumbents'incentives to delegate authority and resources to industrial policy agencies and the degree of symmetry in authority and information flows across these agencies. A cross-regional/cross-national comparison of several subnational units in Spain and Brazil demonstrates that subnational industrial policy is implemented and maintained where incumbents delegate and policy-making agencies are symmetrically integrated.