Value Dynamics: Towards a Framework for Analyzing Public Value Changes

This paper presents a preliminary framework for analyzing how values in the public sector change over time. The specific dynamics are conceptualised as three types of change mechanisms: a teleological, a conflictual and a value-internal change mechanism. Choice of governance systems – hierarchy, clan, network or market - is an example of designing control systems to promote particular values. Another change mechanism is rooted in conflicts between values and the actors carrying these values leading to various organisational responses. Finally, influenced by basic properties of a value changes may follow several distinct patterns such as life cycles, pendulum dynamics, enlargement of scope, refinement and turbulence. The possible outcomes of value dynamic processes are basically changes in value configurations: crowding out, sedimentation, the core-periphery hypothesis, division of labour, and re-interpretation. The paper uses examples from a Danish context, but argues that the value dynamics identified have a more universal scope.     

CONTROL PATTERNS IN CONTRACTING‐OUT RELATIONSHIPS: IT MATTERS WHAT YOU DO,NOT WHO YOU ARE

The contracting‐out of public services has often been accompanied by a strong academic focus on the emergence of new governance forms, and a general neglect of the processes and practices through which contracted‐out services are controlled and monitored. To fill this gap, we draw on contracting‐out and inter‐organizational control literatures to explore the adoption of control mechanisms for public service provision at the municipal level and the variables that can explain their choice. Our results, based on a survey of Italian municipalities, show that in the presence of contracting‐out, market‐, hierarchy‐, and trust‐based controls display different intensities, can coexist, and are explained by different variables. Service characteristics are more effective in explaining market‐ and hierarchy‐based controls than relationship characteristics. Trust‐based controls are the most widespread, but cannot be explained by the variables traditionally identified in contracting‐out and inter‐organizational control studies.     

Conceptual Issues in Inter-Agency Collaboration

Inter-agency collaboration – or partnership as it now commonly termed – is central to New Labour's agenda, but the general support for a partnership approach conceals disputes about definitions and approaches. This article begins by examining the shift to more complex and ambitious partnerships in health, social care and regeneration, which require new modes of governance. The three main modes – market, hierarchy and network – are briefly described and contrasted, and located within the recent history of public service development. It is argued that they are best seen as overlain and co-existing, resulting in a hybrid mode of governance which is characterised by tension and contradiction. The article goes on to discuss the issues this raises for real partnerships in trying to understand the collaborative imperative and the barriers to its effective achievement. Although the network mode has its attractions, there are complex issues of membership, management and culture which need to be addressed. It is concluded that hierarchy, markets and networks will co-exist better where each acknowledges its own limits and the strengths of others.     

HOW POLITICIANS AND BUREAUCRATS NETWORK: A COMPARISON ACROSS GOVERNMENTS

Effective public administration relies on the passage of information through interpersonal communication networks. While we have a vast research literature concerning formal structures and roles in organizations, including public agencies and government institutions, we know far less about the flow of information through semiformal, voluntary interactions. In this paper we use a large survey to explore the networking patterns of politicians and bureaucrats and to compare these with the more formal structural attributes of hierarchy and functional specialization. Social network analysis and standard quantitative measures are used to examine which actors are most central in advice and strategic information networks and how this varies across governments. The results suggest that the communication networks of politicians and bureaucrats differ substantially, with politicians being surprisingly peripheral in their patterns of interaction. Differences across governments are also observed with some municipalities being markedly more hierarchical, cross‐organizational, and externally focused in their networking behaviour.     

Introduction

In this Introduction, Larkin Dudley and Gary Wamsley reveal a dual intent in this project: to reprint the famous Papers on the Science of Administration and to celebrate critically Luther Gulick's contributions to public administration in order that the critique will help us understand ourselves and our conditions. Gulick's contributions as a man of action are praised, but his misplacement of an organizational conception upon a polity with a distinct constitutional design is questioned. In Dudley and Wamsley's view, American public administration is the study and practice of a key component of our governance process, misfounded on a concept of management in monocentric, hierarchical settings and on a focus of power of an elected executive. From the work of the other writers of this symposium, the authors tease out further some of the contradictions in hierarchy and democracy. Finally, they note that Gulick himself at the age of 93 published a repudiation of his early notions of organization based on hierarchy and, instead, called for a more democratic and participatory system in all agencies.     

PUBLIC POLICY NETWORKS AND ‘WICKED PROBLEMS’: A NASCENT SOLUTION?

The last two decades have seen a shift in public services organizations from hierarchies to networks. Network forms are seen as particularly suited to handling ‘wicked problems'. We make an assessment of the nature and impact of this shift. Using recent evidence from the United Kingdom (UK) National Health Service (NHS), we explore the nature and functioning of eight different public policy networks. We are also interested in whether there has been a radical transition – or not – from hierarchical to network forms.     

The influence of institutions and culture on health policies: different approaches to integrated care in England and The Netherlands

The concept of integrated care has assumed growing importance on the policy agendas both in England and The Netherlands and elsewhere. It is characterized as health and health care-related social care needed by patients with multi-faceted needs. This article compares policy approaches to integrated care in England and The Netherlands. Differing political strategies and conditions for integrated care correspond to the dissimilarities in the institutional structure and culture of their health care systems. Health care systems are understood as specific national and historical configurations. We review the last decade's relevant policy processes, using the concepts of hierarchy, market and network. The state health care system in England relies mainly on hierarchical steering, thus creating tight network structures for integrated care on the local level. The Netherlands, with its health care system in a public-private mix, has set incentives for voluntary, loosely coupled and partly market-driven cooperation on the local level. Implications for success or failure are mixed in both configurations. Policy recommendations have to be tailored to each systems' characteristics.     

From centralisation to fragmentation and back again: the role of non-state actors in Brazil’s transformed foreign policy

Abstract

Since the 1990s, Brazil’s foreign policy-making, traditionally a highly centralised and hierarchical process, has become more fragmented, plural and horizontal. In this context, the role of non-state actors has been increasingly relevant. The impact and significance of these actors have been however a matter of debate. While there are authors that consider that non-state actors play only a secondary role in the policy-making process, there are others that assert that these actors work alongside governmental actors and directly influence policy choices. Drawing on the concept of network governance, the paper proposes a different view from the two recurrent approaches in the literature mentioned above. It argues that the recent steps to transform Brazil’s state governance from hierarchy to horizontal networks have indeed expanded the room for the direct participation of non-state actors in the policy process. However, state authorities fought to adjust this tendency, in order to retain control over the decision-making process, by putting in place formal and informal coordinating mechanisms led by the Ministry of Foreign Relations and the Presidency. This suggests Brazil’s foreign policy was made in the shadow of hierarchy. The paper demonstrates the argument using the case of Brazil’s foreign policy towards China.     

Introduction: Networks in Public Administration

In the introductory article to the special issue on Comparing Networks, the editors discuss the meaning of the concept of networks in relation to other recent conceptual developments in public administration such as (neo)institutional and (neo)managerial analysis. They trace the broadly understood historical development of network analysis back to the late 1960s and early 1970s and highlight some important factors in its development up to the present-day demands placed on public administration by both globalization and decentralization. The result is organizational fragmentation. Network analysis makes it clear that people working in government and administration will have to learn to think of organization as an external, not internal activity. The prospect is that hierarchical control will be replaced by continuing processes of bargaining among interested parties within most fields of public administration.     

How learning aggregates: a social network analysis of learning between Swedish municipalities

Using a unique data set of learning among all 290 Swedish municipalities, we use social network analysis to analyse how learning networks aggregate nationally. To facilitate this analysis, we describe five ideal-typical patterns of aggregation: core-periphery, small world, top-down regionalism, bottom-up regionalism and urban hierarchy. Each of these ideal-types has important implications for how ideas, information and innovation will circulate among municipalities. Social network analysis allows us to both isolate these patterns and to appreciate composite patterns. The analysis indicates that Swedish municipalities are a small-world network with regional and hierarchical elements. County seats serve an important role as network hubs.     

Accountability by Professionalism or Managerialism? Exploring Attitudes Among Swedish and Norwegian Local Government Leaders

Most developed countries continue to experience problems with malfeasance and corruption, making accountability a fundamental concern of the public government. Still, the mechanisms which ensure accountability are not given. This article explores two different and apparently conflicting principles of accountability in public organizations: “Professionalism” based on values and internalized incentive structures and “Managerialism” based on externalized incentives and hierarchy. The empirical analysis is based on a comparative survey among local government leaders in Sweden and Norway. The analysis shows that both professionalism and managerialism are regarded as important means for accountability and tend to be understood as complementary more than competing principles.     

Accountability and hybridity in welfare governance

Hybridity has become a central characteristic of accountability in public governance. Contemporary service delivery is increasingly defined by the mixing and layering of public, market and social accountability regimes operating as overlapping ‘hybrid’ accountability arrangements. Although hybrid accountability is not a new phenomenon, recent trends have accelerated the process of hybridization, particularly in welfare state governance. In this symposium, we seek to advance our understanding of the under-theorized concept of hybrid accountability and empirically examine what is actually going on. In this introductory article, we put forward a definition of what hybridity means in public welfare governance and explore its origins and dynamics. We then present the articles of this symposium, showing how they go beyond fixed and static typologies to grasp the dynamics of interactions between actors, values and mechanisms under hybrid accountability. We conclude by reflecting on a future research agenda for studying hybrid accountability arrangements.     

Organizing Babylon - On the Different Conceptions of Policy Networks

A 'Babylonian' variety of policy network concepts and applications can be found in the literature. Neither is there a common understanding of what policy networks actually are, nor has it been agreed whether policy networks constitute a mere metaphor, a method, an analytical tool or a proper theory. The aim of this article is to review the state of the art in the field of policy networks. Special attention is given to the German conception of policy networks which is different from the one predominant in the Anglo-Saxon literature. While British and American scholars usually conceive policy networks as a model of state/society relations in a given issue area, German works tend to treat policy networks as an alternative form of governance to hierarchy and market. It is argued that this conception of policy networks goes beyond serving as a mere analytical tool box for studying public policy-making. Yet, both the German and the Anglo-Saxon conception of policy networks face a common challenge: first, it still remains to be systematically shown that policy networks do not only exist but are really relevant to policy-making, and second, the problem of the ambiguity of policy networks has to be tackled, as policy networks can both enhance and reduce the efficiency and legitimacy of policy-making.     

INSTITUTIONAL LAYERING IN GOVERNING HEALTHCARE QUALITY

Since the 1980s, regulated markets and New Public Management have been introduced in the public sector across the world. How they have affected existing governance mechanisms such as self‐regulation and state regulation has remained largely unexplored, however. This article examines the origins and consequences of institutional layering in governing healthcare quality. Dutch health care, where a market‐based system has been introduced, is used as a case study. The results show that this market‐based system did not replace but modified existing institutional arrangements. As a result, hospitals have to deal with the fragmentation of quality demands. Using the concept of institutional layering, this study shows how different arrangements interact. As a consequence, the introduction of a certain policy reform will work out differently in different countries and policy sectors. Our ‘archaeological’ study in this layering can be seen as an example of how such incremental change can be studied in detail.     

The Dynamics of Multi-organizational Partnerships: an Analysis of Changing Modes of Governance

Multi-organizational partnerships are now an important means of governing and managing public programmes. They typically involve business, community and not-for-profit agencies alongside government bodies. Partnerships are frequently contrasted with competitive markets and bureaucratic hierarchies. A more complex reality is revealed once partnerships as an organizational form are distinguished from networks as a mode of social co-ordination or governance. Data from studies of UK urban regeneration partnerships are used to develop a four-stage partnership life cycle: pre-partnership collaboration; partnership creation; partnership programme delivery; and partnership termination. A different mode of governance - network, market or hierarchy - predominates at each stage. Separating organizational form from mode of governance enables a richer understanding of multi-organizational activity and provides the basis from which theory and practice can be developed. The key challenge for partnerships lies in managing the interaction of different modes of governance, which at some points will generate competition and at other points collaboration.     

Public Sector Added Value: Can Bureaucracy Deliver?

This paper takes stock of our understanding of the 'architecture' of public sector resource allocation mechanisms. It is a speculative venture and provides a framework for thinking about issues rather than a completed theoretical model. The concept of architecture is borrowed from the design sciences and is used to explore the conditions of performativity within networks of relational contracts. The age-old question of markets versus hierarchy is too simplistic. Instead, the search is for optimal complex network relationships that are based upon co-operation and participation rather than competition and control. Within these networks the public sector, it is argued, has a new role of acting as a broker in the creation of value. Judging the public sector's relative effectiveness in the creation of value also requires closer attention to be given to the context within which public sector managers take decisions. In particular it is necessary to acknowledge that they confront the 'wicked' problems of society that the electorate demand to be solved. This gives renewed interest in the notion of market failure.     

Networks, Management and Institutions: Public Administration as 'Normal Science'

How does network analysis fit into the development of public administration as an academic discipline? This article tries to bridge theoretical developments in public administration between the middle of the 1970s and the first half of the 1990s. The benchmarks being used are (1) the now classical account by Vincent Ostrom of The Intellectual Crisis in (American) Public Administration - published 25 years ago this year - and (2) Christopher Hood’s reconstruction of core values in (British) new public management. Rather than representing analytical developments as an endless succession of different or even mutually exclusive approaches, this contribution tries to reconcile different foci for analysing public administration. Administrative theory provides us with a rather stable meta-theoretical framework for studying the meaning of quality in government, governance and public administration at various levels of analysis. By relating the emergence of network analysis in PA to parallel developments such as the resurgence of (neo-)managerial and (neo-)institutional analysis, it also becomes clear that network analysis is useful as an analytical device, but that it needs to be linked to theoretical perspectives that provide us with operational assumptions about ‘networks’. Network analysis in itself only provides split ground for reinventing government and refounding public administration.     

Public Value Review of China’s Public Policies on Human Organ Transplantation

Public value is a concept used to evaluate government acts and social affairs and is especially useful for evaluating ethical issues from a non-economical perspective. This article reviews the public values of China’s public policies related to human organ procurement and distribution, with the assistance of case and survey studies, and summarizes the value hierarchy or value tendency that the Chinese government wants to express through its policy design and practice. The purpose of this article is to understand national ethical policies and to determine what public values deserve to be prioritized in this field.     

Public hospitals as competitors for medicaid revenue: the case study of St. Louis regional medical center

Medicaid revenues may determine whether public hospitals will survive. Public hospitals participate aggressively in the public market competition for their states’ Medicaid dollars. States must decide whether the survival of public hospitals, as providers of last resort to both Medicaid and uninsured patients, is of continuing importance to their Medicaid programs. Cities, if the states were willing, alternatively could voucher uninsured patients and direct Medicaid patients to the private hospitals that would outlive closed public hospitals. In fact, Medicaid's managed care programs already have heightened this competition, by organizing sufficiently large populations of prepaid Medicaid patients to attract networks of private providers to offer discounted prices, in competition with public hospitals for this market.

Although Medicaid has been a comparatively poor payer, nationally, almost half of public hospitals⁷ funding comes from this source of revenue. Urban public hospitals can barely live with Medicaid revenues, but the extent to which they can live without Medicaid revenues is being determined by surprising new turns in market competition for the revenue. A period of expansive and expensive new congressional mandates for the joint federal-state program was followed in the early 1990s by the introduction by the states of Medicaid revenue maximization strategies. The states’ funding levels, the bases for matching federal contributions, were artificially elevated by provider taxes, provider donations, and intergovernmental transfers. The revenue from all these sources was returned to these providers through the Disproportionate Share Hospital subsidy program for Medicaid-dependent hospitals, as soon as the federal revenue match was calculated, based upon the inflated figures. These practices currently are being stymied, and states simultaneously have escalated competitive bidding by private market managed care providers for Medicaid patients. Missouri has been in the forefront of states moving to maximize the federal Medicaid revenue match and to return Disproportionate Share Hospital funds to providers. St. Louis's public hospital, Regional Medical Center, has been weaned off its local government subsidies, as the intergovernmental transfer and DSH enticements compromised the stability of that hospital's revenue picture. Now, unprotected by an integrated healthcare system or other major role in a regional hospital network, this urban public hospital must struggle to survive within its Medicaid managed care competitive market. The question for the state of Missouri is whether perpetuating a future for Regional will ensure its Medicaid patients a traditional caring public medicine alternative as a fallback position, if Medicaid's present foray into the private market goes awry. For Regional and the city of St. Louis, the question is whether they can any longer count upon traditional state Medicaid revenue and financial support.     

Two Faces of Transparency: The Regulations of People’s Republic of China on Open Government Information

The People’s Republic of China enacted the first nationwide open government information regulations (OGIRs) in 2007. The regulations safeguard Chinese citizens’ right to know and provide public oversight. This analysis aims to explain how and why the Chinese government incorporates the universal values of transparency and accountability into the complex Chinese political systems. The article first provides a theoretical framework of government transparency and a quick road map of OGIRs for international audiences by tracing its regulatory details. It then analyzes OGIRs’ external mechanisms of transparency on how information flows to the citizenry through public supervision and judicial review. Fourthly, the article explains OGIRs’ internal mechanisms of transparency and accountability through the hierarchical control of the party-state agencies and officials. The article emphasizes that transparency and accountability are as important to today’s Chinese government and civil society as they are in democratic regimes generally. OGIR shares the values of external transparency and legislative missions of the U.S. Freedom of Information Act (FOIA). However, the Chinese government tailors information disclosure to meet the institutional requirement of strengthening internal accountability mechanisms, maintaining the party-state’s authority and legitimacy, and representing the collective welfare and public interest.