PUBLIC MANAGEMENT AND POLITICS: SENIOR BUREAUCRATS IN FRANCE

Why is new public management reform so difficult to implement in France? In order to answer this question, this article examines the changes that have affected the higher civil service since the late 1970s. Decision‐making networks have been considerably politicized, and public policies are now largely devised by ministerial cabinets staffs. Simultaneously, the tasks of career senior civil servants are increasingly technical and specialized. The management reforms undertaken since 2002 by an economically liberal government might have offered senior bureaucrats the opportunity to regain a more active professional role, but the reforms run counter to their political culture, since the large majority of them still share a leftwing political ideology. Reformers seem to have no other choice than to change the institutional system in order to resolve this contradiction.     

RESTRUCTURING WEBERIAN BUREAUCRACY: COMPARING MANAGERIAL REFORMS IN EUROPE AND THE UNITED STATES

In much of the international public administration literature, New Public Management (NPM) already appears to be bogged down in a quagmire of critical revisions and assessments. Although some criticisms are well founded, there can be no doubt that NPM represents a trend which has considerably affected public‐sector decision‐making worldwide. This article takes the examples of the Southern European bureaucracies, where NPM‐inspired reforms were introduced later than in the English‐speaking world, but have nevertheless played a decisive role in the political agenda of both socialist and conservative governments. The paper presents the results of a comparative study of administrative reforms in five European countries as well as the USA during the 1980s and 1990s. The comparison is based on three specific dimensions (central bureaucracies’ formal structure; civil service organization; administrative processes), enabling us to systematically measure and compare the progress of the various countries subsequent to the cycle of managerial reforms.     

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.     

‘You're Just Treating Us as Informants!’ Roles,Responsibilities and Relationships in the Production of Children's Services Directories

Local authorities in England are required to make directories of services available to practitioners working with children and young people. This is against a background of continuing reforms intended to ensure that services are joined-up around the needs and choices of children, young people and their families. There are high expectations that more of these services will be delivered by organisations from theVoluntary and Community Sector (VCS), especially services for groups or communities that public sector agencies find hard to engage. This article reports and comments upon a regional study focusing on the production of children's service directories involving service providers and commissioners, as well as the producers of directories, in a series of facilitated workshop activities. The study highlights tensions between local authorities and service providers around how information about services is controlled, edited and accessed. We argue that current approaches to the provision ofdirectories are unlikely to have the transformational effects predicted by policy makers. This is partly because local authorities' traditional position (supported by the prevailing technologies) has meant that they have tended to monopolise the roles and responsibilities which in turn maintains their control of directory content. They do so in the face of increasing dissent from new and established providers. Moreover, current models of service directories fail to meet the emerging information needs of a range ofstakeholders including service providers, service commissioners and service users. Inconclusion we propose some questions to improve visibility and governance in the creation and maintenance of service directories.     

THE IMPACT OF PUBLIC MANAGEMENT REFORMS ON STUDENT PERFORMANCE IN DANISH SCHOOLS

Many resources have been invested in reforming the public sectors of most countries in the world during the last 20 years. Greater focus on evaluation and performance is one of the most central aspects of these reforms, but despite much academic research virtually no systematic evaluations of the outcome of the reforms themselves are found. This paper presents a study of the effect of performance management reforms of Danish public schools on the achievements of more than 80,000 lower secondary students. The study finds no or very small effects on performance measured as average exam scores, but highly significant effects on inequity in the sense that students with low socioeconomic status perform worse at reforming schools than at similar non‐reforming schools. These results, as well as the methodological challenges involved in estimating reform impact, emphasize the need for more empirical scrutiny of what effects the reforms have.     

THE ODYSSEY OF ADMINISTRATIVE REFORMS IN GREECE, 1981–2009: A TALE OF TWO REFORM PATHS

In Greece, two distinct reform paths led to institutional building and economic managerial types of reform. These two reforms, with the exception of the period 1996–2004, when both institutional and economic reforms were attempted, did not attract the same degree of attention. Institutional reforms were more successful than attempts at managerial reforms; reform implementation on the other hand varies. Economic and managerial reforms can be observed with regard to economic competition, the opening up of the market, and reducing the size of public sector, all areas where pressure from the EU has been stronger. Decentralization reforms were more important politically than administratively. Citizens' rights and service delivery were conceived as reforms of democratization and modernization rather than as managerial reforms. ‘Agencification’ amounted to circumventing existing ministerial structures. Change was incremental, and reforms were minimally guided by the New Public Management paradigm, because of little emphasis on changes imbued by managerial and economic values. Reform dynamics benefited not only from outside pressures but also from the operation of internal, ‘modernizing’ forces.     

Beyond privatisation and cost savings: alternatives for local government reform

Unsatisfactory results from privatisation have caused local governments to seek alternative reforms. Inter-municipal cooperation, mixed public/private delivery and contract reversals are three alternatives that have gained traction in the last decade. These alternatives help local governments manage markets for public service delivery as a dynamic process. They maximise government/market complementarities and address a wider array of public goals beyond cost efficiency concerns. The alternative reforms show how local governments balance citizen, labour and community interests to ensure efficiency, coordination and stability in public service delivery.     

CHOICE AND EQUALITY: ARE VULNERABLE CITIZENS WORSE OFF AFTER LIBERALIZATION REFORMS?

In recent decades, we have witnessed a massive restructuring of public service delivery mechanisms, including service liberalization reforms, the pursuit of the choice agenda, and the creation of quasi‐markets. A central aim of these reforms was that citizens should receive better value for money through greater competition among service providers. However, it is debated whether all layers of society are equally able to benefit from these developments. We assess the equality in citizens' choice behaviour with regard to liberalized services of general interest across 25 countries of the European Union. Our findings show that the gap between less and better educated service users, in terms of actual switching behaviour, widens once a considerable degree of service liberalization, as evidenced by the number of service providers, has been achieved. However, this has been found only in the mobile telephony sector and not in the less competitive market of fixed telephony services.     

NEW MODES OF GOVERNANCE IN ITALY AND THE NETHERLANDS: THE CASE OF ACTIVATION POLICIES

This article discusses the growing importance of operational reforms in the context of welfare state transformation processes, and the role that principles of new governance play in shaping these reforms. It focuses specifically on one social policy area considered crucial in reforming welfare states: the provision of activation services that aim at increasing the employability and labour‐market participation of people dependent on benefits or social assistance. The article argues that besides the reforms of the programmatic aspects of social policies and social services (formal policy reforms), reforms of the way in which policies and services are organized, administered and delivered (operational policy reforms) have received increasing attention as a ’second strand’ of welfare state reforms. It illustrates this by analysing and comparing reforms of the provision of activation services in two European countries: Italy and The Netherlands. The article not only reveals the growing emphasis in both countries on operational policy reforms which are to an important degree inspired by principles of new governance, but also shows significant similarities and differences in their concrete manifestations, which could be interpreted as pointing out processes of ‘path‐dependent convergence’.     

DISTINCTIVENESS OF ADMINISTRATIVE REFORM IN GREECE,ITALY, PORTUGAL AND SPAIN. COMMON CHARACTERISTICS OF CONTEXT,ADMINISTRATIONS AND REFORMS

This article, the final part of the symposium, concentrates on the common characteristics of Southern European states and administrations that can explain the distinctiveness of the reforms there. First, we briefly consider the theoretical aspect of the country papers, that is, historical institutionalism. We then briefly review some common features of contextual factors such as welfare state, economy and civic culture. This is followed by a discussion of some typical characteristics of Southern European administrations: legalism, politicization and clientelism. Finally, we discuss some common features of reform in Southern Europe. Reform in the region encompasses not only new public management; other reforms have also occurred. However, political polarization means these countries lack the stability necessary to implement and carry out reform effectively. In terms of improvement in quality, efficiency and client orientation of public service provision, the far‐reaching politicization of the civil service gives a distinctive twist to any such claims.     

Postal Service Reforms in Solomon Islands of the South Pacific: Evaluating Consequences for Public Service Delivery and Customer Satisfaction

The changing environment of the postal sector over the last decade has increased the urgency for governments worldwide to re-examine regulations governing how their public postal administrations operate. The need to increase service efficiency and quality is a critical strategic focus, given the increasing technological competition, rising operational costs, and changing customers' needs and expectations. There are many success stories, particularly from developed countries, highlighting improved service quality following corporatization of their public postal administration. This particular study revealed that reforms of the Solomon Islands postal service have had some positive influence on the level of customer satisfaction.     

Administrative reform in Malaysia: Recent trends and developments

During the past two decades, the public bureaucracy in Malaysia has undergone substantial reforms. Broadly aimed at excellence in the public service, these recent reforms are in many respects similar to those introduced in other countries under the new paradigm of “managerialism”. This article analyses the present trends of reforms in Malaysia and comments on some concerns and emerging issues. It shows that while these reforms have generally improved the delivery of public services, public administration in Malaysia continues to suffer from such problems as a weak system of accountability, growing incidence of corruption and mismanagement, absence of decentralisation and community participation, and non‐enforcement of rules and regulations.     

President Gloria Macapagal‐Arroyo's anti‐corruption strategy in the Philippines an evaluation

Fighting corruption has been one of the priority issues for President Gloria Macapagal‐Arroyo for the past five years. Faster‐paced and result‐oriented implementation of anti‐corruption projects did bring some tangible results. There are new laws and executive and administrative orders related to anti‐corruption which have been passed. New strategies during her second term such as strengthening anti‐corruption agencies, more social value formation at the national level, and the use of e‐procurement in the government system, show encouraging signs for success. However, despite the effort and achievement, the public perception of corruption and sincerity of the government performance in fighting corruption remains unchanged or has even worsened. Is it due to lack of political will? Does this mean that the government is losing the war on corruption? The answers are complex, but two important reasons are the slow progress to improve the country's economy and the ineffectiveness of the government which has resulted in a negative public perception. The government needs to gain more public confidence so that the anti‐corruption reforms will strengthen good governance and make it accountable.     

Public Nursery School Costs and the Effects of the Funding Reforms in Japan

Using a panel dataset of 983 municipalities across Japan, this article investigates the impact of the funding reforms in 2004 on public nursery schools’ operating costs. We found that municipalities responded differently to the reforms, depending on their fiscal strength and city scale. In areas with relatively large populations, fiscally stronger municipalities were likely to spend less on public nursery schools in the wake of the reforms, while municipalities in smaller cities spent more. Besides, municipalities that were not compensated for the loss of the national subsidy reduced expenditures in large cities. In small cities, on the other hand, such municipalities actually increased expenditures.     

CIVIL SERVICE REFORM IN THE UK, 1999–2005: REVOLUTIONARY FAILURE OR EVOLUTIONARY SUCCESS?

In December 1999, the UK Civil Service Management Board agreed an internal reform programme, complementing the more externally‐oriented ‘modernizing government’ programme, to bring about major changes in the functioning of the civil service –‘step change’ rather than continuous improvement. This paper suggests that the aims of the reform programme were only partially achieved. While some step changes did indeed occur, even such central elements of reform as ‘joined‐up’ working with other public organizations were still only at an initial stage some three years later and others – for example, business planning and performance management systems – have taken 20 years to achieve acceptance within the civil service. It appears that examples of meteoric change are rare in the civil service – the reality of the changes are better characterized as ‘evolution’ and ‘continuous improvement’ than ‘revolution’ and ‘step change’.     

Regulating Markets: The Real Costs of Poly-Centric Administration under the National Health Insurance Scheme (1912–46)

Using a transaction cost perspective, this article explores the administrative costs involved in quasi-market systems of public service delivery. Employing the historical example of the interwar National Health Insurance scheme, it revives Beveridge's early criticisms of the duplication and expense incurred by the utilization of approved societies for benefit administration purposes. To this we should add the costs incurred by central audit and actuarial evaluation, the main mechanisms through which the societies were centrally regulated. The article concludes that, thanks to regulatory requirements, this poly-centric system of public administration was more expensive than a state-run equivalent – and that this message has significance for recent reforms. In the course of the analysis, the narrowness of a 'pure' transaction cost perspective is demonstrated and common assumptions concerning distinctions between 'the state and the market' in administrative structures are drawn into question. The division of public administration into these two typologies is arguably based on a false dichotomy.     

STATE REGULATORY CAPACITY: EXPERIENCES FROM PUBLIC SECTOR REFORMS IN NORWAY

State regulatory capacity is being threatened by internationalization, commercialization and persistent demand for public services. The article addresses the overarching question of how the state is changing due to recent public sector reforms. By studying changes in the regulation of the health care sector and the food sector in Norway, the article challenges the assumption that recent public sector reforms have necessarily led to a decline of the central state's regulatory strength. The conclusions are that the central state level has in fact been strengthened by regulatory reforms, by transferring authority to the state level and by enhancing the central administration's co‐ordinating and regulating capacity.     

POLICING WITH A SMILE: NARRATIVES OF CONSUMERISM IN NEW LABOUR'S CRIMINAL JUSTICE POLICY

A recurrent theme in New Labour's public service reforms has been a tendency to orient services to the user as a consumer or customer of those services. However a consumerist approach – and particularly the 'customer is always right' imperative – appears problematic in relation to criminal justice. This article uses content analysis to explore the use of consumerist narratives by selected members of the UK criminal justice policy network (Prime Minister, Home Office and local government). It finds that the terms customer and consumer are used less in relation to criminal justice than they are in relation to other public services. When used, it is 'law-abiding citizens', particularly victims and witnesses, that are the priority customers of the service. Customer-orientated policing is primarily about standardizing services and encouraging more coproductive behaviours. The language of choice and personalization, which has come to characterize New Labour's approach to public service reform, has as yet had little penetration into criminal justice. However, the policy network is fragmented, with different narratives of consumerism emerging from Tony Blair (the then Prime Minister), the Home Office and local government, demonstrating the contingent ways in which policy-makers draw on historical traditions.     

PATIENT CHOICE IN HEALTHCARE IN ENGLAND AND SWEDEN: FROM QUASI‐MARKET AND BACK TO MARKET? A COMPARATIVE ANALYSIS OF FAILURE IN UNLEARNING

This paper compares elements of choice introduced under the market orientated reforms in health systems in the UK and Sweden in the 1990s, and the recent patient choice policy in both countries. It reviews empirical evidence on the impact of choice on users and services under these reforms to examine whether, and how far, these past developments have informed the current choice reforms. The paper asserts that the reappearance of issues and solutions in patient choice policy in the English NHS and in Sweden signifies limited learning from their own past and cross‐national experience, resulting in blurred and mutually exclusive policy agendas. The study argues that this absence of learning happens because of the seeming inability of governments and policy‐makers to unlearn effectively their preconceived ideas and schemas, pointing out the limitations of social learning theory in understanding health policy development.     

New Public Management and Democratic Participation: Complementary or Competing Reforms? A South African Study

Abstract

Administrative and participatory reforms are common in developing countries, often introduced together and expected to complement each other. Some observers question whether the reforms do complement each other, however, specifically suggesting that the two types reflect different relational and governance patterns. Based on such thought, a “differential relationship influence hypothesis” is presented and tested, investigating whether new public management (NPM) reforms complement or compete with democratic‐participatory reforms. Econometric analysis of survey data shows that South African municipalities adopt NPM reforms more readily when influenced by top–down intergovernmental relationships but adopt participatory reforms more readily when faced with bottom–up civic influences. This evidence supports the hypothesis and indicates that administrative and participatory reforms may not complement each other. The study also indicates a common administrative culture effect on both types of reform adoption—differential relational influences can be tempered by experimental and change‐minded administrators in local governments.