Ministers in Ulster: The Machinery of Direct Rule

Lord Windlesham Lord Privy Seal and Leader of the House of Lords, was until recently Minister of State for Northern Ireland. This article is the revised text of a lecture he gave at The New University of Ulster on 26 April 1973. The lecture was delivered as one of a series of six, arranged by the Department of Social Administration at The New University, which have since been published as Occasional Papers. I would like to acknowledge the kindness of Professor H. Griffiths in agreeing so readily to the proposal to reproduce Lord Windlesham's contribution to this series of lectures in 'Public Administration'. (Hon. Editor.)     

LORD HALDANE'S MINISTRY OF JUSTICE — STILLBORN OR STRANGLED AT BIRTH?

Echoes of the Haldane Committee's proposal in 1918 for the establishment of a Ministry of Justice can still be heard in current debate about the machinery of justice. Yet the Haldane proposal itself vanished almost without trace in the inter-war years. This article examines the content and the context of the sporadic debate and concludes that the non-implementation of the proposal is attributable to the innate conservatism of the legal profession and, more particularly, to the influence of the Lord Chancellor's Permanent Secretary, Sir Claud Schuster.     

Book Reviews

Abstract

Since the Grabiner Report in 2000 Grabiner, Lord. 2000. The Informal Economy: A Report by Lord Grabiner QC, London: HM Treasury/The Stationery Office Ltd..  [Google Scholar] there has been growing concern on the part of government over the scale of the informal economy. Most of the proposals to address this growth have focused on ways to deter such activity. But there have also been efforts to assist those who wish to legitimise their activities. This paper argues that a social enterprise approach to formalisation would be of benefit to tackling joblessness and social exclusion as well as generating further social economic activity in deprived neighbourhoods. The paper draws upon review research and original research work currently being conducted into formalisation strategies.     

The Conservatives and the Civil Service: ‘One Step Forward,Two Steps Back’?

The period since 1979 has witnessed more radical change in the civil service than in any other peacetime era in its history. Such has been the order of change that Lord Bancroft, the former Head of the Home Civil Service, has suggested that the civil service was in danger of being 'demolished' and of there being a return to the ills of the 'unreformed' service before the 1850s. This would be to take the 'two steps back' of the article's title before the Northcote-Trevelyan report and the Warren Fisher era. Against the background of this possible outcome, this article evaluates the Next Steps programme and the other initiatives promoted by recent Conservative governments, before concluding that the requirements of the work and a markedly unified career civil service need not be compatible, and that there is at least the possibility that the various changes when fully implemented could represent 'one step forward'.     

'Portrait of a profession revisited'

On the walls of my private office hang the photographs of my seven distinguished predecessors as Secretary of the Cabinet. I sometimes find myself staring at them for inspiration, not always successfully I admit. A week or two ago I found myself looking at the great Lord Bridges, Secretary of the Cabinet and War Cabinet from 1938 to 1946. I wondered what he would have made of it if in the space of a week one of his predecessors had published an article in The Spectator advertised as ‘The Descent of the Civil Servant’ and another had appeared on the Frost programme to reassure the world that the Service was still in good shape. Both predecessors, Lords Butler and Armstrong, I hasten to say, were acting in the most supportive spirit and spoke from what for all of us is a deeply shared view of the role of the Civil Service. But, staring at Bridges, I could see a bubble emerging from his mouth enquiring: what precisely is happening on your watch, Sir Richard?     

Book Notes

Book review in this Article An Introduction to Public Administration E. N. Gladden. The British Approach to Politics Michael Stewart. Insight into Government Lord Craigton. How Ireland is Governed James D. O'Donnell. Russian Political Institutions Derek J. R. Scott.     

Book Reviews

Book review in this article
The European Administrative Elite John A.Armstrong.
English Local Government Reformed Lord Redcliffe-Maud and Bruce Wood.
The Planner in Society David Eversley.
Traffic Congestion Goes Through the Issue-Machine: A Case-Study in Issue Processing, Illustrating a New Approach David Braybrooke
Politics and Land Use Planning: The London Experience Stephen L.Elkin.
Transport Organization in a Great City: The Case of London M.F.Collins and T.M.Pharoah.
Private Enterprise and Public Intervention: The Courtaulds Experience Arthur Knight.     

Book Reviews

Book Reviewed in this article
The Modernization of British Government W. Thornhill (ed).
Economic Planning and Politics in Britain Jacques Leruez
Econocrats and the Policy Process: The Politics and Philosophy of Cost-Benefit Analysis Peter Self
Social Service Budgets and Social Policy: British and American Experience H. Glennerster
Environmental Planning 1939–69, Volume II. National Parks and Recreation in the Countryside Gordon E. Cherry
Swindon: A Town in Transition, A Study in Urban Development and Overspill Policy Michael Harloe
Support for the Arts in England and Wales Lord Redcliffe-Maud
Agriculture D. Murray et al.     

The Fear Factor is a Main Thing: How Radio Influences Anxiety and Political Attitudes

We investigate how being exposed to media influences levels of anxiety and political attitudes in conflict-affected areas. Exploiting exogenous variation in signal strength of a radio station in South Sudan’s Western Equatoria State, we compare original qualitative and quantitative data from areas with differing radio coverage. Civilians living in areas with more exposure to radio are more afraid of attacks by the Lord’s Resistance Army (LRA). This anxiety means civilians rely more on a civilian militia, the arrow boys, and less on the state army. Hence media, through fear, can contribute to changing social and political structures.     

Book Reviews

Book Reveiwed in this article
Administering Britain Brian C. Smith and Jeffrey Stanyer
The Quest for Control: A Critique of the Rational-Central Rule Approach in Public Affairs . H. Van Gunsteren
Staff Appraisal and Development E. Anstey. C. Fletcher, J. Walker.
The Consume Cause: A Short Account of its Organization, Development, Power and Importance Ronald Wraith
Government and the Planning Process P. H. Levin.
Public Expenditure in Practice Lord Diamond
A Tax Shall Be Charged Dorothy Johnstone.
Value for Money in Health Services B. Abel-Smith.
Personnel Management in Local Government Alan Fowler.
Welfare State and Welfare Society: Illusion and Reality William A. Robson.
The Sale of Council Houses: A Study in Social Policy
Housing Policy and the Housing System Alan Murie
The Foreign Policy Process in Britain William Wallace.     

Rebels in Northern Uganda after their return to civilian life: between a strong we-image and experiences of isolation and discrimination

This article is based on biographical interviews and field research carried out in two adjacent regions of northern Uganda on local peace and post-war processes. It focuses on the situation of former rebel fighters following their return to civilian life. In the case of Acholiland, these are primarily former “child soldiers” of the so-called Lord’s Resistance Army who were recruited by violent abduction; in West Nile they are primarily men who more or less voluntarily joined local rebel groups as adults. The following questions were investigated: How do rebels who have returned from the “bush” speak about their past and their present? What discourses do they confront within the groupings, or we-groups, to which they are regarded as belonging and whose collective knowledge they refer to? What is the nature of their present situation and how can it be socio- and psychogenetically explained and interpreted?     

Quantifying and Qualifying Charisma: A Theoretical Framework for Measuring the Presence of Charismatic Authority in Terrorist Groups

In the past four decades, there has been increased multidisciplinary scholarly interest in the study of charismatic authority. However, there has yet to be any systematic examination of charismatic authority in the context of terrorism, despite widespread acknowledgment of the importance of charismatic leaders in the recruitment, radicalization, and operation of terrorist groups. This article seeks to contribute to future empirical research by presenting a theoretical framework for measuring the presence of charismatic authority in terrorist groups that is based on Max Weber's seminal work on legitimate domination (herrschaft) and on theoretical insights drawn from the study of charismatic authority in new religious movements. The framework is then applied to an illustrative case study of the relationship between charismatic authority and the radicalization process within the far-right terrorist group “the Covenant, the Sword, and the Arm of the Lord.” The article concludes with a discussion of findings and suggestions for future research.     

SCALE ECONOMIES AND IRON LAWS: MERGERS AND DEMERGERS IN WHITEHALL 1971–1984

Between 1971 and 1984 there were ten cases of merger or demerger in British central government departments, ranging in importance from the massive DTI demerger into four distinct departments (1973) to the absorption by the Lord Chancellor's Department of the Office of the Public Trustee (1982). By analysis of changes in aggregate indices of 'top staff', 'middle staff', ratio of administrative grades to total staff, salary costs relative to total budget, budget relative to total Government budget, and staff relative to total Civil Service staff, some common hypotheses about the rationale and effects of such bureau-shuffling are explored. It is found that, if anything, like attracts unlike (in terms of these indices); that change in scale creates neither economies nor diseconomies; that reorganization does not inevitably produce cost escalation (the 'Iron Law of Prodigality'); but that the 'Iron Law of Inertia' (reorganization in practice has little observable effect on bureaucratic structure and working) is supported by the observed results.     

Post-Contractual Lock-in and the UK Private Finance Initiative (PFI): the Cases of National Savings and Investments and the Lord Chancellor's Department

According to the UK government, one of the key features of the Private Finance Initiative (PFI) is the scope it provides to transfer risk to private sector suppliers. Under the PFI, public bodies are expected to develop interdependent relationships with suppliers that allow risk to be transferred. However, it is the argument of the author that it will not always be possible for interdependent relationships to be engineered by public bodies – on many occasions, public bodies will find themselves asymmetrically locked-in to their supplier. This situation leads to private sector suppliers becoming dominant in those relationships which, in turn, will allow them to pass back risk and obtain greater returns. As a result, the author argues that it is not a question of whether risk can be transferred under the PFI, but when. This argument is illustrated by use of the contracts managed by the UK National Savings and Investments and the UK Lord Chancellor's Department.     

From intergenerational equity to intergenerational stewardship

This essay borrows from our civic humanist tradition to present an alternative to the more dominant neo-utilitarian approach to evaluating current decisions and their potential burden on future generations. The analysis first focuses on financial debt, and then applies the framework beyond the realm of financial policy. The framework exposes some limitations in the rational-quantitative approach to policy decision, and embraces the art of stewardship as a more encompassing and appropriate role in public life. Stewardship brings intergenerational obligations to bear on decisions that current analytic techniques fail to regard as meaningful. The ways and means of stewardship are matters more of prudent judgment and passionate commitment to ways of life than of rigorous analytic precision.

[A] man owes it to his children, to his neighbors to secure their future and rescue their lives from impediments to holiness and happiness. Therefore he has no right to acquiesce in tyrannical and immoral government.

Lord Acton⁽¹⁾     

A Lipskian analysis of child protection failures from Victoria Climbié to "Baby P": a street-level re-evaluation of joined-up governance

This paper explores the issue of joined-up governance by considering child protection failures, firstly, the case of Victoria Climbié who was killed by her guardians despite being known as an at risk child by various public agencies. The seeming inability of the child protection system to prevent Victoria Climbié's death resulted in a public inquiry under the chairmanship of Lord Laming. The Laming report of 2003 looked, in part, to the lack of joined-up working between agencies to explain this failure to intervene and made a number of recommendations to improve joined-up governance. Using evidence from detailed testimonies given by key personnel during the Laming Inquiry, the argument of this paper is that we cannot focus exclusively on formal structures or decision-making processes but must also consider the normal, daily and informal routines of professional workers. These very same routines may inadvertently culminate in the sort of systemic failures that lead to child protection tragedies. Analysis of the micro-world inhabited by professional workers would benefit most, it is argued here, from the policy-based concept of street-level bureaucracy developed by Michael Lipsky some 30 years ago. The latter half of the paper considers child protection failures that emerged after the Laming-inspired reforms. In particular, the case of ‘Baby P’ highlights, once again, how the working practices of street-level professionals, rather than a lack of joined-up systems, may possibly complement an analysis of, and help us to explain, failures in the child protection system. A Lipskian analysis generally offers, although there are some caveats, only pessimistic conclusions about the prospects of governing authorities being able to avoid future child protection disasters. These conclusions are not wholeheartedly accepted. There exists a glimmer of optimism because street-level bureaucrats still remain accountable, but not necessarily in terms of top-down relations of authority rather, in terms of interpersonal forms of accountability – accountability to professionals and citizen consumers of services.     

The sources of European Union legitimacy: Political theories old and new

David Beetham and Christopher Lord, Legitimacy and the European Union (Longman, Harlow, 1998), 144 pp., ISBN 0–582–30489‐X (pb)

Thomas Banchoff and Mitchell P. Smith (eds), Legitimacy and the European Union: the Contested Polity (Routledge, London, 1999), 225 pp., ISBN 0–415–18189–5 (pb)

Albert Weale and Michael Nentwich (eds), Political Theory and the European Union: Legitimacy, Constitutional Choice and Citizenship (Routledge/ECPR Studies in European Political Science, London, 1998), 205 pp., ISBN 0–415–17313–2 (hb)     

The Memory of Violence: trauma in the writings of Alexander Kanengoni and Yvonne Vera and the idea of unreconciled citizenship in Zimbabwe

Seasonal Dimensions to Rural Poverty. Edited by Robert Chambers, Richard Longhurst and Arnold Pacey, London: Frances Pinter. 1981. 259pp. £15.50.

International Trade 1980–81. GATT, Geneva: GATT. 1981. 199pp. Swiss Francs.30.

Global Strategy for Growth: a report on North‐South issues. Lord McFadzean of Kelvinside, Chairman of the Study Group London: Trade Policy Research Centre. 1981.100pp. £2.00.

Part‐Time Farming in Cyprus: a pilot study. Richard Pearce, Reading, England: Department of Agriculture Economics and Management, University of Reading. 1981. 93pp. £2.00.

Bank for International Settlements. Fifty‐first Annual Report, April 1980 ‐ March 1981. Bank for International Settlements Basle, Switzerland: B.I.S. 1981.168pp. np.

Divide and Rule: South Africa's Bantustans. Barbara Rogers, London: International Defence and Aid Fund. 1980. 136pp.£2.00pb. (revised and enlarged 2nd edition).

Adrian Guelke

Cultural Atlas of Africa. Edited by Jocelyn Murray, Oxford: Phaidon. 1981.240pp. £17.95.

Cattle, Economics and Development. Raymond Crotty Slough, England: Commonwealth Agricultural Bureau. 1980. 253pp. np.

World Bank Annual Report. World Bank, Washington, D.C.: World Bank. 1981.210pp. np.

Farm Power in Bangladesh. Vol. 1 G J Gill, Reading, England: Department of Agricultural Economics and Management, University of Reading. 1981. 248pp. £2.00.     

Democracy in Spain: Legitimacy, discontent, and disaffection

This article examines changes in perceptions of democracy in Spain over the last two decades. A variety of empirical indicators gleaned from numerous surveys are used to distinguish between democratic legitimacy and political discontent, as well as between this (which includes the well-known indicator of dissatisfaction with the way democracy works) and political disaffection. The article traces the different ways in which these attitudes have evolved in Spain over the last twenty years, and demonstrates that they belong to different dimensions. It also includes the results of two tests showing that these two sets of attitudes are conceptually and empirically distinct: a factor analysis confirms the distinct clustering of the indicators at the, individual level, whilst cohort analysis identifies different patterns of continuity and change across generations. José Ramón Montero is Professor of Political Science at the Universidad Autónoma de Madrid. He obtained his doctorate in Law at the Universidad de Santiago and has taught, at the Universities of Granada, Santiago, Zaragoza, Cádiz and the Universidad Complutense de Madrid. He has been Visiting Professor at the Universities of Harvard, California at Berkeley, and Ohio State University, as well as Secretary and Dean of the School of Law, Universidad de Cádiz, and Deputy Director of the Centro de Investigaciones Sociológicas. Richard Gunther is Professor of Political Science at Ohio State University. He has a Ph.D. in Political Science from the University of California at Berkeley, and is co-Chair of the Subcommittee on Southern Europe of the Social Science Research Council. Mariano Torcal is Assistant Professor of Political Science at the Universidad Autónoma de Madrid. He holds a doctorate from the Universidad Autónoma de Madrid and a Ph.D candidacy in Political Science from the Ohio State University. He has been a Visiting Professor in the Department of Political Science at the Univeristy of Michigan, and Visiting Fellow at the Kellogg Institute for International Studies, Notre Dame University.     

NEGOTIATION AND MEDIATION IN THE PUBLIC SECTOR - THE GERMAN EXPERIENCE

The article argues that one should look not only at attempts to reduce governmental regulation via privatization and deregulation, but also to pay attention to new modes of dispute-resolution in highly complex and controversial issues. Following an alleged 'crisis of regulatory policy', the authors discuss ways and means of negotiation and mediation in the public sector. Based on American approaches, the German experience is at the forefront of their interest. The systematic and at the same time empirically oriented analysis looks at 'alternative' ways to regulate through cooperative behaviour, evaluates attempts at unassisted and assisted negotiations as a means of conflict resolution, and sheds light on the necessary framework for the use of mediation policies and techniques. A careful optimism on the use of negotiation and mediation in public sector disputes prevails.