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.     

INFORMATION SYSTEMS AND NEW PUBLIC MANAGEMENT - A VIEW FROM THE CENTRE

The combination of new public management reforms and 'informatization' is presenting opportunities for the re-engineering of government business activities. Awareness and debate about the implications of this are limited however. Structural reforms to public services need to take account of the notion of information stewardship, and an essential competence of public officials is to manage and use information held in trust. Public service reforms which lead both to fragmentation and to the contract culture have implications for information systems development and implementation. Whilst new technology can be used to alter radically the administrative and service delivery systems of government, technical possibilities must be set alongside issues such as the privacy of the individual and the protection of public interest. The article also discusses the role of the Office of Public Services and Science, and HM Treasury, in stimulating appropriate strategies to cope with these dilemmas.     

ROMANIA: A CASE STUDY IN DELAYED PRIVATIZATION

ABSTRACT

Romania emerged from 45 years of communism with 12,000 enterprises in state hands. As the nation moved toward democracy and free market conditions, its new leaders created legislation to privatize at least half of the state owned enterprises. In the years 1990 to 1996, the actions to privatize state owned enterprises went slowly, even though outside organizations such as the International Monetary Fund, World Bank, and European Union urged speed in privatization. Until November 1996, former communists who had high positions under Nicolae Ceasusescu led the government. After 1996, with a reform coalition running the country, privatization speeded up and made a difference in the county's economy. Privatization continues even though the government changed hands again in 2000. Romania's delayed privatization program has so far precluded the emergence of a new group of powerful owners who become so strong they can stymie the long-term achievement of a fully reformed economy.     

MANAGING INFORMATION SYSTEMS IN UK PUBLIC ADMINISTRATION: ISSUES AND PROSPECTS

The record on the development and use of information-based technologies in UK public administration is reviewed and distinctive risks identified. Risk levels associated with computerization may be increasing rather than abating as a result of both the content of New Public Management initiatives, and also how they are being introduced and applied. This article considers ways forward from the point of view of improving how informatization can proceed, and also how markets can be used to provide information-based services for public administration.     

ANALYSING POLITICAL CHOICE IN LOCAL GOVERNMENT: A COMPARATIVE CASE STUDY APPROACH

Despite the centralizing trends which have characterized the 1980s, local authorities have displayed considerable skill in their pursuit of policies designed to cope with effects of the government's grant abatements and other, legislative restrictions. Indeed, it is paradoxical that a continued diversity in response has characterized the strategies of various local authorities over the period. However, our theoretical understanding has often failed to keep pace with the reality of a still vibrant local government. Even those 'output' studies which identified the different influences at work invariably failed to explain why localities diverged in their responses. Similarly, the expository power of sophisticated intergovernmental relations (IGR) models has not fully accounted for such divergence. This research builds on the IGR model but explicitly acknowledges the importance of a 'localities effect' in shaping the application of the model in specific local authorities. This is facilitated by a comparative case study approach based on evidence from Glasgow and Liverpool.     

ENVIRONMENTAL JUSTICE: A CASE STUDY OF FARM WORKERS IN SOUTH FLORIDA

ABSTRACT

One purpose of this study is to examine the complex government infrastructure that implements and enforces laws that were created to protect farm workers from environmental hazards. The second purpose is to present a case study on farm workers in South Florida to determine whether the federal and state laws are protecting this occupational group from environmental hazards related to pesticide exposure.

A survey based on questions that pertain to various laws was used to gather data on farm workers in two South Florida counties. Face-to-face interviews were conducted with farm workers at several migrant farm worker day care centers in Palm Beach and Indian River County, Florida. The findings of the study reveal that federal and state laws which are currently in place to protect the workers from pesticide exposure do not adequately protect the workers from exposure to harmful pesticides and farm workers are uninformed of the laws which exist to protect them from possible pesticide exposure.

The study concludes with policy recommendations that will improve the implementation and enforcement of the current laws designed to protect farm workers from pesticide exposure.     

MANAGING NETWORKS IN THE PUBLIC SECTOR: A THEORETICAL STUDY OF MANAGEMENT STRATEGIES IN POLICY NETWORKS

Public policy usually develops in complex networks of public, quasi-public and private organizations. It is now generally accepted that these networks set limits to the governance capability of the administration. A good deal less is known about the opportunities which policy networks offer for tackling social and administrative problems. This article deals with the way network management enables government organizations to benefit from networks. Building on the theoretical concepts of‘networks’and‘games’, two forms of network management are identified: game management and network structuring. Four key aspects can be identified for both of these management forms: actors and their relations, resources, rules and perceptions. At the same time, criteria for the assessment and improvement of network management are examined. The article concludes with a consideration of the limits of network management.     

BRITISH GOVERNANCE IN TRANSITION: A CASE STUDY OF THE NORTHERN IRELAND CIVIL SERVICE

ABSTRACT

In comparisons of the internal governmental arrangements within states, the United Kingdom (UK) is ordinarily categorised as a unitary state conforming to the ‘Westminster model’. However, this article contends that the changing nature of British governance over the last two decades means that the UK is better viewed as a ‘union state’ that conforms more readily to a ‘differentiated polity model’. Nowhere is the reality of differentiation more clearly exemplif ied than in respect of the British civil service. To illustrate the extent of differentiation, the article presents a case study of the characteristics and trends in the civil service of Northern Ireland for, while the politics of the Province have received great attention, its system of public administr ation has been chronically under-reported. The article considers the changing structures, policy process and impact of public management reforms as well as the restoration of devolved government. Finally, it summarises how the evidence from Northern Ireland informs theoretical understanding as well as its implications for the rest of the UK and beyond.     

MANAGEMENT INFORMATION FOR MINISTERS: THE MINIS SYSTEM IN THE DEPARTMENT OF THE ENVIRONMENT

MINIS, a management information system for ministers in the Department of the Enviroment, was introduced by Michael Heseltine in 1980. The article summarizes the main features of the system and analyses some of the issues arising from its introduction, in particular, whether it is likely to be adopted by other government departments or public bodies. The reasons offered by departments as to why it is difficult to transfer are examined, together with other factors which are likely to inhibit transfer to other public sector bodies. The mechanism for promoting the spread of such systems is also discussed. The conclusion is that MINIS ought to be considered by other bodies and it has almost certainly already had some impact on systems elsewhere in central government, but without a central initiative, more widespread adoption is on past evidence unlikely, although parts of it may be adopted.     

CONTRACTORS' EXPERIENCE OF COMPULSORY COMPETITIVE TENDERING: A CASE STUDY OF CONTRACT CLEANERS IN THE NHS

Compulsory competitive tendering (CCT) has been an important instrument of Conservative government economic policy since 1979. Its effectiveness in generating cost-effective services depends on competition to supply the service in question.
The NHS domestic market is large and, prior to the introduction of CCT, promised to be profitable for contractors. Many contract cleaners with office cleaning experience entered. In the event the costs of entry were heavy, and the profit margins of established firms were reduced. When contracts have been awarded to firms, they tended to be to those with a track record. Many firms therefore withdrew; and the few that remained have profit margins in the NHS little different from those found elsewhere. Of more than by firms with a serious interest in entry, probably no more than a handful can have come out of the experience in net profit in the first seven years.
The experience of CCT in the market for NHS domestic services has shown that a degree of competition in the market can be achieved, arguably because of the presence of direct service organizations. Competition for this market, on the other hand, can be limited by the high costs of entry.     

PERFORMANCE, EVALUATION AND THE NHS: A CASE STUDY IN CONCEPTUAL PERPLEXITY AND ORGANIZATIONAL COMPLEXITY

This paper adopts a comparative perspective towards the analysis of performance evaluation in the National Health Service. The NHS, it is argued, is best seen as an organization which is not unique but which ranks high on a number of dimensions: uncertainty about the relationship between inputs and outputs; heterogeneity of activities and aims; the ambiguity of the available information. These factors help to explain why performance evaluation in the NHS is both conceptually and organizationally problematic, and fragmented and professionalized in practice. By looking at the same factors in other organizations, it may be possible to start constructing a framework for examining the problems of performance evaluation in different settings.     

HOW POLICY NETWORKS CAN DAMAGE DEMOCRATIC HEALTH: A CASE STUDY IN THE GOVERNMENT OF GOVERNANCE

This article examines a detailed case study of implementation networks in England using the example of the relocation of the Norfolk and Norwich hospital, which became a flagship PFI project for the Labour government after 1997. The case study illustrates the workings of the new order of multi‐layered governance with both local and national networks from different policy areas interacting. However, it also sheds light on the governance debate and illustrates how in the world of new public management, powerful actors, or policy entrepreneurs, with their own agenda, still have the facility, by exercising power and authority, to shape and determine the policy outputs through implementation networks. It is argued that, whereas policy networks are normally portrayed as enriching and promoting pluralist democratic processes, implementation networks in multi‐layered government can also undermine democratic accountability. Four aspects here are pertinent: (1) the degree of central government power; (2) local elite domination; (3) the fragmentation of responsibility; and (4) the dynamics of decision making which facilitates the work of policy entrepreneurs. All these factors illustrate the importance of ‘the government of governance’ in the British state.     

DEVON COUNTY COUNCIL: A CASE STUDY OF A HUNG COUNCIL

Discussions on coalition politics have tended to see the phenomenon as a feature of European national systems offering a contrast to the British tradition of (largely) single-party government. However, the 1980s saw the rise of English local governments where highly politicized party groups were forced to compromise their political programmes in order to attain a share of power; between 1985–89, half of the English county councils were hung. This situation has particular significance in Devon, where four distinct political groups were negotiating for control. This study analyses the process of administrative formation, maintenance and breakdown in Devon, using the insights of the actors involved. While icy closeness is a crucial factor in the formation of administrations, the initial distribution of office portfolios plays a critical role in the later demise of the co-operation between the Alliance and Labour. The study also highlights the importance of considerations such as past history, personal relations, institutional structures, and even geography to the formation and maintenance of political agreements. Devon's experience of hungness is interpreted using a 'multi-method' approach, with reference to both studies of hung councils and developments in coalition theory.     

EUROPEANIZATION AND BUREAUCRATIC AUTONOMY IN THE NEW MEMBER STATES: A CASE STUDY OF THE AGRICULTURAL PAYING AGENCY IN SLOVAKIA

The paper explores the impact of Europeanization on bureaucratic autonomy in the new EU member states using as a case study the Agricultural Paying Agency in Slovakia. The paper shows that Europeanization had limited sustained impact on the personal autonomy of senior officials; however, it requires and sustains the personal autonomy of an extensive cadre of mid‐level and junior civil servants. At the same time, it necessitates and continues to sustain significant change in the way agricultural subsidies are distributed, with a high level of autonomy in implementation and a lower, but still significant, measure of autonomy in policy‐making. These conclusions can also generally be supported by evidence from Lithuania and Poland. In addition, the coercive elements of Europeanization interacted with the temporarily high bureaucratic autonomy in Slovakia to ‘open’ non‐coercive channels of Europeanization of agricultural subsidies and beyond.     

COMMITTEE SCRUTINY WITHIN A CONSOCIATIONAL CONTEXT: A NORTHERN IRELAND CASE STUDY

This article considers non‐legislative committee scrutiny at the Northern Ireland Assembly. The core question is: How is such committee scrutiny diminished through the consociational/power‐sharing context? The question is assessed in terms of three phases – selection, obtaining evidence, and evaluative – and through eight specific claims. Consideration is also given to the context of the absence of a formal opposition, ways in which politicians can circumvent consociational constraints, and connections to the current reform agenda at the Assembly. Overall, the study identifies significant support for the claims in terms of practice at the Assembly and suggests that these findings offer opportunities for other scholars to develop further the literature on consociational governance. There is also a clear association with wider issues of the balance of power between legislatures and executives more generally.     

PERFORMANCE MEASUREMENT IN SPANISH LOCAL GOVERNMENTS. A CROSS‐CASE COMPARISON STUDY

This paper explores local government in Spain: the nature of and extent to which performance measures are developed and how they are used in some of the biggest Spanish local governments. The features of performance measurement in Spain raise the question of why non‐mandatory performance indicators are introduced and why specific initiatives are undertaken. A cross‐theory strategy allows us to build a wider explanation of the cases studied. This study shows that performance measurement systems are not neutral but conditioned by the environmental context of each local government to fit into its organizational structure. Spanish local governments are experimenting with different approaches – centralized/decentralized, top‐down/bottom‐up, internal/external use – to implement performance measures. A relationship between external use and the top‐down approach, and internal use and the bottom‐up approach can be found. Our results also show that the institutional image value of taking decisions under rational decision‐making models is the primary driver of implementation processes.     

NATIONAL HEALTH INSURANCE: A CASE STUDY IN THE USE OF PRIVATE NON-PROFIT MAKING ORGANIZATIONS IN THE PROVISION OF WELFARE BENEFITS

Some of the key features of co-operation between the State and other sectors (private, voluntary and informal) in providing welfare benefits are illustrated in the experience of the National Health Insurance scheme which operated in this country between 1911 and 1948. This is the only example in the UK of a major welfare scheme operating over a considerable period which utilized private, if non-profit making, organizations as responsible agents for administration. Under the scheme certain categories of working people were compelled to insure themselves against sickness. The scheme was administered and benefits paid through a multiplicity of independent 'approved societies', with insured people free to choose which society they belonged to. Contributions were paid by employers as well as employees, with a state subsidy on top. This study indicates that any future development of joint welfare provision with the private sector must overcome certain inherent divergencies in values between the public and private sectors.     

THE INSTITUTIONALIZATION OF POLITICAL DISCRETION IN POST‐COMMUNIST CIVIL SERVICE SYSTEMS: THE CASE OF HUNGARY

This article addresses the discrepancy between attempts to establish professional, de‐politicized civil services and the politicization of personnel policy at the central government level of post‐communist countries. It develops the concept of formal political discretion as an analytical tool for the assessment of how and to what extent legislative frameworks governing civil services provide institutional conditions for the de‐politicization of personnel policy. The case of Hungary shows that since the change of regime in 1989/90, four civil service reforms have led to the adoption, implementation and revision of civil service legislation that has gradually reduced the possibilities for government ministers to exercise political discretion over personnel policy. Civil service reforms have also led to the institutionalization of various discretionary instruments which ministers can and have used to politicize civil service affairs. The adoption and implementation of civil service laws therefore does not necessarily lead to the de‐politicization of civil services.