REGIONAL GOVERNANCE IN ENGLAND: A CHANGING ROLE FOR THE GOVERNMENT’S REGIONAL OFFICES?

Debates about the appropriate territorial scales of government to meet the challenges of economic, political and social change have gained momentum in Western Europe in recent years. In the UK, political mobilization has transformed constitutional arrangements in Northern Ireland, Scotland and Wales. By contrast, in the English regions, a less radical approach has been adopted, but the outcome has been a strengthening of the institutions of regional governance. A key feature has been the enhanced responsibilities of the Government Offices for the Regions, which have been encouraged to build on their traditional administrative functions and adopt a more strategic role. This article explores the Offices’ contribution to regional and local governance. Our central argument is that although increasingly expected to act as a bridgehead between national and sub‐national government and a focus for regional policy coordination, their potential role in filling the missing gap in English regional governance has not yet been fully grasped.     

BUREAU SHUFFLING? THE REVIEW OF PUBLIC ADMINISTRATION IN NORTHERN IRELAND

The Belfast (Good Friday) Agreement of 1998 resulted in the return of devolved government to Northern Ireland and, with it, a decision by the Executive and Assembly to conduct a radical review of public administration. The review is now reaching its final stages and this paper considers the likely outcomes. It both argues that the parameters of the review will limit its impact and describes the reform proposals as either structural changes or administrative rationalization, both devoid of a wider modernizing approach to improving public services. In Northern Ireland, the on/off nature of devolution could result in ‘one of the major tasks for devolved government’ (according to the Northern Ireland Executive) being implemented by Direct Rule ministers.     

POLICY MAKING AND THE DEMONSTRATION EFFECT: PRIVATIZATION IN A DEPRIVED REGION

The aims of public policies are not always clearly articulated by ministers. Further the aims that are stated may not reflect all – or indeed the most important – aims. In some cases declared policy aims bear little relationship to the real intentions of ministers in undertaking an initiative. In other cases policy decisions are intended as symbolic statements, demonstrating government attitudes on a range of issues beyond the specific matter under consideration. These ideas are explored in the context of the privatizations of Harland and Wolff and Shorts, two major industrial government-owned companies in Northern Ireland. The article concludes that government sought to use the privatizations as a symbolic statement, namely to demonstrate that the heavy dependence on the public sector within Northern Ireland had to be reduced.     

CONTROLLING LOCAL GOVERNMENT EXPENDITURE: THE CASE OF NORTHERN IRELAND

The purposes of this paper are twofold, namely to outline the basic features of local government finance in Northern Ireland and to discuss how this financial system has been affected by the concerns of central government to control public expenditure. It will be argued that there has been no radical revision of the local government financial system but that central government used traditional methods of moral suasion and capital controls to induce councils to restrict their spending. The reasons for this include the small size of local expenditure and the political risks involved in further curbing local government in Northern Ireland.     

TERRITORIAL PUBLIC EXPENDITURE IN THE UNITED KINGDOM

Although the devolution plans of the 1970s were abandoned, those debates had far-reaching consequences for the determination of relative public expenditure levels in the United Kingdom. The Barnett formula (10:5:85) of 1978 provided that increases in public expenditure in Scotland and in Wales for specific services within the territorial blocks would be determined according to the formula consequences of changes in equivalent English expenditure. A parallel formula allocated 2.75 per cent of the change in equivalent expenditure in Great Britain to Northern Ireland. The essential distinction is between base expenditure (whose current levels are carried forward) and incremental expenditure (which is determined by formula). The predicted convergence of block expenditure relatives on the LJK per capita average was frustrated by formula bypass, and in Scotland by relative population decline. The background to the 1992 recalibration of the Barnett formula (10.66:6.02100.00 and Northern Ireland 2.87 per cent) is analysed. Territorial block expenditure is set within the structure of territorial public expenditure aggregates, and evidence is assembled on identifiable public expenditure relatives between countries and by English region.     

POLICY DIFFERENCES WITHIN THE UNITED KINGDOM: THE CASE OF HOUSING POLICY IN NORTHERN IRELAND 1979–89

This article examines, through a case study of housing, the extent to which national housing policies under the Thatcher government were modified or deflected at the N. Ireland regional level. Three aspects of housing policy - housing expenditure, public sector rents and the 'right-to-buy' legislation are considered and the roles of key actors within the territorial community described. Although similarities with GB housing policy emerge, there is evidence of a distinctive regional approach. Factors which influenced a N. Ireland-specific policy approach are considered and the potential for variance in the future outlined.     

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.     

Belfast beyond Violence: Flagging up a Challenge to Local Government?

Abstract

Northern Ireland is emerging from violence but still living with conflict. The recent flags protests in Belfast represent a challenge to public administration to transcend the contested politics of local government in Northern Ireland and to navigate a way through a symbolic legacy issue. This article draws on a longitudinal hermeneutic analysis of empirical research conducted on Northern Ireland local government over a decade, where these concerns dominated much debate. Additional analysis of the research findings reveals broader problems applicable to any public administration faced with managing situations in which good governance in public participation and procedural correctness operates alongside fundamental political disagreement and distrust. These conclusions are particularly pertinent for local administrations in societies transitioning from conflict.     

Rational Management, Performance Targets and Executive Agencies: Views from Agency Chief Executives in Northern Ireland

The way in which central government services are delivered in both Britain and Northern Ireland has changed significantly since 1988. Executive Agencies have been created with the aim of improving the efficiency and effectiveness of service delivery, with changes being supported by an increasing focus on the rational management model as a basis for improving management in the public sector. This paper is a case study of nine agencies within the Northern Ireland 'family of agencies' and is the first study of its type in the UK. It presents the results of a series of interviews with agency Chief Executives that attempted to identify perceptions with respect to the development, use and impact of mission statements, objectives, targets and performance measures (components of a rational management approach). The main findings of the research include: Northern Ireland Chief Executives perceive an increased focus on quantification since agencification; this focus is viewed as helpful in providing a basis for improving management; systems in practice are considered to be much more flexible than a rigid management model would normally suggest; and, it is thought that the potential adverse consequences of such an approach can be managed.     

THE FRENCH STATE AND ITS TERRITORIAL CHALLENGES

This article focuses upon the territorial challenges to the French state. There is a genuine policy puzzle in terms of how to join up separate agencies of the state that is far from unique to France. Introducing new evidence based on interviews with high ranking officials, politicians and representatives of territorial policy communities in 2010, the main body of the article focuses upon the two main territorial reforms of the Sarkozy presidency, the reform of the territorial state, and the local government reform. These cases reveal an original attempt to craft a political discourse based on public sector productivity and state puissance. The article explores the tension between synoptic models of reform, focused on the expectation of rapid and quantifiable macro‐level change that suits the short‐term returns of the political cycle; and institutionalized processes of meso‐level implementation, with different timescales, logics of appropriateness and configurations of actors.     

The Politics of Local Government Reform in Northern Ireland

A major review of public administration in Northern Ireland has resulted in proposals for radical reforms in health, education and local government services. Although originating from the devolved government of 1999, intermittent suspensions resulted in Direct Rule Ministers taking over responsibility for the review. This article traces the influence of a sizeable body of research evidence on the outcomes of the review, specifically controversial reforms to local government, and the significant influence attached to macro political factors in reaching key public policy decisions. It also highlights the asymmetry in power relations between Stormont and local government and how devolution has simply compounded regional centralism in Northern Ireland.     

Local E-Government and Devolution: Electronic Service Delivery in Northern Ireland

There are billions of annual transactions between citizens and government; most of these are between citizens and local government. Both central and local government share the same target for electronic service delivery: 100% of key services online by 2005. In Northern Ireland, however, district councils are being left behind on the e-government agenda. The Northern Ireland Assembly, currently suspended, has no provisions or recommendations for local e-government, although many transactional services of interest to ordinary citizens are provided by local councils. The absence of a strategy for local e-government means that district councils are left to their own devices, and this contrasts with the rest of the UK. A snapshot of local councils is used to assess the extent of provision of electronic service delivery, highlighting examples of innovation, and indicating significant challenges for Northern Ireland local e-government during a period of suspended devolution.     

FREEDOM OF INFORMATION: THE IMPLICATIONS FOR THE OMBUDSMAN

In an article in Public Administration five years ago I reported on the operation of the new freedom of information laws in Australia, Canada and New Zealand (Hazell 1989). Despite these Commonwealth precedents, under Mrs Thatcher's premiership the British government maintained that freedom of information was incompatible with the Westminster system of ministerial accountability to Parliament. Under John Major that line has softened a bit, and last year the British government took an important step towards freedom of information, with the introduction of its new code of practice on open government. The code of practice will be policed by the Ombudsman; and this article considers the implications of this novel extension to his jurisdiction.     

Problem,Process and Product: Implementing Key Reforms in Local Government in Northern Ireland Since the Belfast Agreement

This article maps the key findings from empirical research on how local government mainstreamed new statutory duties to promote equality and good relations in a change implementation process emerging from reform introduced in 1998 to embed the Northern Ireland peace process. It departs from the elite political focus of much of the international literature on peace building and addresses organisational change developments in a context that was intensely politicised, highly contentious and required radical organisational change. Newry and Mourne District Council addressed their problem of perceived inequality in employment, by engaging in a lengthy process of change and development to achieve ‘product’ in the form of a more balanced workforce, power sharing in the Chamber and more participative democratic arrangements for decision-making, both inside the organisation and in external relations. The key factors that facilitated this change process included the availability of political will, change champions, appropriate resources and structural adaptation.     

THE FINAL OUTCOMES OF THE REVIEW OF PUBLIC ADMINISTRATION IN NORTHERN IRELAND. TENSIONS AND COMPATIBILITY WITH DEVOLUTION,PARITY AND MODERNIZATION

In terms of the configuration of structures and the distribution of functions for the delivery of public services, the final decisions on the Review of Public Administration in Northern Ireland encompass significant changes compared to those proposed in 2005. This article places that review in the context of a devolved system of public administration. It identifies four different phases of the review process which have had a differential impact on the predominant themes, principles and structures. A range of tensions are identified, particularly between the proposals for structural change in the final outcomes and earlier recommendations, and also between the final decisions on structural changes and the guiding principles set out as underpinning these changes. The review proposals can be located within the public service reforms of the UK government and a number of perspectives are suggested for evaluating the extent to which the outcomes of the review are compatible with key components of the modernizing and devolution agendas of the UK government.     

INTRODUCTION: EXPLOITING IT IN PUBLIC ADMINISTRATION - TOWARDS THE INFORMATION POLITY?

This introduction to the theme issue on Towards the Information Polity? Public Administration in the information age presents the case for the systematic academic investigation of the changing relationships which characterize the ‘information polity’. This perspective on the information polity focuses on the significance of new kinds of informational resources and flows in government, and their interaction with broad directions of reform in contemporary public administration, including the new public management. It is argued that, whereas the literature of business strategy has emphasized the economic logic by which ‘informatization’ encourages organizational transformation, the articles in this issue demonstrate the importance of wider cultural, organizational and political factors to understanding processes of informatization and the changing nature of the emergent ‘information polity’.     

The Return of "Captain Moonlight": Informal Justice in Northern Ireland

In the working-class areas of Northern Ireland alternative forms of justice operating in parallel to the State's criminal justice system exist. This informal criminal justice system, administered by paramilitaries, includes threats, warnings, beatings, shootings, and executions. Informal justice mechanisms emerged in the early days of "the Troubles" and have continued to develop. This article maps the development of informal justice in both republican and loyalist areas of Northern Ireland and examines the ways in which paramilitaries "police" their communities and mete out "punishments."     

MANAGING EUROPE FROM AN IRISH PERSPECTIVE: CRITICAL JUNCTURES AND THE INCREASING FORMALIZATION OF THE CORE EXECUTIVE IN IRELAND

This article analyses the management of European Union (EU) business by the Irish core executive. More specifically, it investigates the demands placed by EU membership on the Irish system of public administration and how the system has responded to these demands. Employing an institutionalist analytical framework, the article maps the formal and informal organizational and procedural devices or structures used to manage EU affairs in Ireland, as well as dissecting the key relationships that govern this management process and the role of the domestic agents actively involved in the EU’s governance structure, the cadre or boundary managers. The article also explores in a dynamic way the development of the capacity for the management of EU affairs in Ireland over time. Using the concepts of path dependence and critical junctures, we illuminate how key system‐management decisions became locked‐in over time and we isolate the triggers for significant adaptational change, be they domestic or external. Adaptation to EU business in Ireland was path‐dependent and consisted of gradual incremental adjustment. This system of flexible adaptation generally served Ireland well as the EU’s policy regime expanded and evolved, but in response to the shock rejection of the Nice Treaty by the electorate in 2001, significant formalization of the Irish system occurred with the establishment of new processes and rules for managing relations between the core executive and the EU.     

THE IDEA BROKERS: THE IMPACT OF THINK TANKS ON BRITISH GOVERNMENT

Although there are few think tanks in Britain they have been credited with considerable influence on government policies since the late 1970s. This article charts their recent history, distinguishing between larger, 'establishment' bodies like the Policy Studies Institute and smaller, more politically partisan bodies such as the Centre for Policy Studies; generally the latter have enjoyed greater influence. It identifies the distinctive characteristics of these bodies–their ideological orientation, their concentration on élite opinion formers, their short to medium-term horizons, their emphasis on originality and publicity. Think tanks face tactical dilemmas when pressing their views on Britain's comparatively closed system of government, in particular their choice between insider and outsider forms of persuasion; the tension between proximity to ministers and intellectual autonomy; and their advantages to politicians as deniable sources that can float new ideas, which can be counter-balanced by politicians' fluctuating appetite for radical ideas. As a case study the article examines the relations enjoyed by the Institute of Economic Affairs and the Centre for Policy Studies with Mrs Thatcher's government, and particularly the evolution of a potent network of influence embracing ministers, special advisers and backbenchers. Finally it considers the dangers of an overemphasis on novelty at the expense of feasibility, and the danger of burnout in the smaller think tanks dangers mitigated by the continuous turnover that operates in the world of think tanks.     

The role of local government in the review of public administration in Northern Ireland: The challenges of enhancement,devolution and modernisation

A very limited system of local government has been one of the main characteristics of public administration in Northern Ireland for the past 35 years. Yet in the recently completed Review of Public Administration changes in local government occupied a very dominant position. This article gives an account of the reasons for this, analyses the processes which led to what may be viewed as an enhancement of local government but argues that the principles adopted by the UK Government to guide the reforms, of subsidiarity, strong local government, coterminosity and good relations have not been met. The lack of an analysis in the Review of the implications of devolution for local government reform and the distribution of functions is highlighted including the relevance of the distinction between administrative and political devolution. How the proposed reforms relate to the UK-wide local government modernisation agenda is also discussed.