Public Service Performance and Trust in Government: The Problem of Causality

Abstract

Concerns for restoring citizens' trust in government are at the core of public sector modernization. Public distrust is often blamed on the bad functioning of public services, and in political discourse well‐functioning public services are said to create trust in government. This is a very rational and mechanistic reasoning, only part of which corresponds to reality. The link between performance and trust can only be made when very specific conditions are present. The core of the discussion deals with causality: it is obvious that performance of the public administration has a certain impact on trust in government, but existing levels of trust in government may also have an impact on perceptions of government performance. In this article, we outline a framework for research on this performance–trust relation.     

Implementation Studies: Time for a Revival? Personal Reflections on 20 Years of Implementation Studies

This paper presents a review of three decades of implementation studies and is constructed in the form of a personal reflection. The paper begins with a reflection upon the context within which the book Policy and Action was written, a time when both governments and policy analysts were endeavouring to systematize and improve the public decision-making process and to place such decision-making within a more strategic framework. The review ends with a discussion about how public policy planning has changed in the light of public services reform strategies. It is suggested that as a result of such reforms, interest in the processes of implementation have perhaps been superseded by a focus upon change management and performance targets. It is further argued that this has resulted in the reassertion of normative, top-down processes of policy implementation. The paper raises points that are important ones and indeed are reflected throughout all four papers in the symposium issue. These are: (1) the very real analytical difficulties of understanding the role of bureaucratic discretion and motivation; (2) the problem of evaluating policy outcomes; and (3) the need to also focus upon micro political processes that occur in public services organizations. In conclusion, the paper emphasizes the continued importance of implementation studies and the need for policy analysts to understand what actually happens at policy recipient level.     

From Discourses to Policy: Analyzing the Creation of an Accountability Discourse in Colombia

This article analyses the construction of a public discourse about accountability in Colombia. The article maps the different interpretations that actors make of political ideas related to accountability and their change over a period of 13 years (1991–2014). The article has an interpretive framework and uses content and discourse analysis techniques to identify meanings different actors give to the concept of “accountability” and changes in these meanings. It identifies an academic discourse on accountability, as well as external actors’ discourses that influenced the construction of a public and official discourse in Colombia. It concludes by identifying the effect of this process of building consensus about meaning on the resulting public policy.     

Policy analysis for local government

This paper considers the impact of quality approaches within the personal social services over the last decade. In particular it examines how applicable private sector approaches to quality, such as Total Quality Management, are in the public and personal social services. Both the hard and soft tools of Total Quality Management are critically considered in terms of their relevance and ability to modernise service provision. In the context of the managerial discourse presently dominating the public sector, it is argued that the hard tools of Total Quality Management, such as performance measurement and review, will only add to managerial control; whilst the soft tools of empowerment and cultural change will lose their critical effect. It is the contention of this paper that unless the current Labour government's Modernising Services Policy succeeds in democratising the process of developing quality then it will only add to the managerial agenda at the expense of improving service provision.     

Public–private efficiency in the delivery of services of general economic interest: The case of urban transport

This paper studies urban transport, a public service with extensive initiatives towards deregulation and privatisation throughout the European Union and in other developed and developing countries. The relative merits of deregulation, public or private provision and the implications of different policies for the performance of public services have become important issues. A crucial question is what type of operating and regulatory environment is best suited to stimulate efficiency in public service delivery. This paper analyses specifically the effect of privatisation and deregulation on the technical efficiency of bus services in 73 cities, in order to compare performance in cities with bus services provided by public operators, private operators, both types simultaneously or in which the service is deregulated. The behaviour of the different types of operators analysed in this paper shows that competition – total or partial – is effective in controlling costs.     

Does Ownership Matter for the Delivery of Professionalized Public Services? Cost‐efficiency and Effectiveness in Private and Public Dental Care for Children in Denmark

Recent decades have witnessed considerable interest in the cost‐efficiency and effectiveness of public services. Private provision is often claimed to be more cost‐efficient than public provision, but these efficiency gains are accused of being at the expense of effectiveness. Most of the evidence comes from relatively simple, technical services, because effectiveness is often difficult to define and measure for services produced by professionals. In addition, type of ownership might very well affect services produced by professionals differently as a result of professional standards and other regulation. The case in question, child dental care in Denmark, is a professionalized service which is remarkable for its clear and quantifiable measure of effectiveness. The findings show that neither cost‐efficiency nor effectiveness of public and private producers differs. The data represent cost and outcome measures controlled for structural variables for the 275 Danish municipalities between 1996 and 2002.     

The efficiency and effectiveness of municipally owned corporations: a systematic review

Municipally owned corporations (MOCs) are increasingly utilised to provide local public services, but little remains known about their efficiency and effectiveness. In this article, we offer a typology of MOCs, explore the variables that affect their behaviour, and perform a systematic review of public administration articles published between 2001 and 2015 on their efficiency and effectiveness. We find that MOCs are often more efficient than local bureaucracies in the provision of services such as refuse collection, water distribution, and transit services, although they also have high initial failure rates. We conclude that municipally owned corporations are a viable means for delivering some local public services for localities capable of initiating and managing complex contracts. In light of the scarcity of literature on this topic, our conclusions remain tentative, and we encourage additional research into this growing phenomenon.     

An empirical survey of frontier efficiency measurement techniques in local government

Local government in advanced economies is undergoing a period of rapid reform aimed at enhancing its efficiency and effectiveness. Accordingly, the definition, measurement and improvement of organisational performance is crucial. Despite the importance of efficiency measurement in local government it is only relatively recently that econometric and mathematical frontier techniques have been applied to local public services. This paper attempts to provide a synoptic survey of the comparatively few empirical analyses of efficiency measurement in local government. We examine both the measurement of inefficiency in local public services and the determinants of local public sector efficiency. The implications of efficiency measurement for practitioners in local government are examined by way of conclusion.     

Scientific Research on the Efficiency of Public Expenditures: How and Where is it Going?

ABSTRACT

Recent scientific research has advanced the measurement of the relative performance of organizations and the efficiency of public spending, based on analyzes of the services offered and results achieved. However, from the methodological point of view, there are several methods to analyze the performance and efficiency of spending in the private and public sectors. In this sense, the present study performs a systematic bibliometric review to analyze all scientific publications on the efficiency of public spending published in the last 20 years. The results show that most cost-efficiency analyzes have been limited to education and health expenditures and have used quantitative analysis, mainly through the application of data-involution analysis. The present review is a first step in mapping scientific publications on efficiency in public spending, which will support researchers and managers to make public spending more efficient.     

Public sector reform and the public interest in Australia

Contemporary public sector reforms in Australia have been dominated by efficiency, productivity and contestability considerations captured in the National Competition Policy (NCP). Both in the reform process in general and in the NCP processes in particular, the lack of priority attributed to non‐economic concerns such as co‐ordination, equity, representation, political accountability, consultation and distributive outcomes has been a serious omission. The idea of public interest, once central to democratic public administration, has re‐emerged to challenge the perceived excesses of economic rationalism as the unifying idea of reform. In this article it is argued that substantive situational manifestations of public interest can be used to complement rather than undermine the efficiency, productivity and contestability objectives of public sector reform.     

HOW THE REINVENTING GOVERNMENT MOVEMENT IN PUBLIC ADMINISTRATION WAS EXPORTED FROM THE U.S. TO OTHER COUNTRIES

From an academic point of view, Reinventing Government (RG) is a weak book. But the judgment of the academic community leaves with an interesting problem:How can we account for the relative influence that RG ideas have acquired over public management practices and for the enthusiasm with which those ideas have often been received by bureaucratic reformers in many countries? To answer this question, the article develops an analysis that proceeds in two stages. In the first section, I show how RG ideas gained ascendancy in political circles because they altered the terms of discourse about government management and made new kinds of coalitions possible. The second part looks at the structure of the global management consulting industry to show how the consultants who advised the Clinton administration were able to rely on already existing international network of American-based consulting organizations through which they could preach their Reinvention gospel around the globe. The American domination of the world management consulting market; coupled with the growing use by states of external consulting services as a source of advice on management issues, allowed consultants to carry RG ideas into the heart of the policy process.     

Management Discretion and Political Interference in Municipal Enterprises. Evidence from Italian Utilities

The attention of scholars and policy-makers is shifting from full privatisation to alternative measures as a means to improve the efficiency of public services. This article focuses on three restructuring measures adopted by local governments: partial privatisation (without transfer of control rights), inter-municipal joint ventures, and the presence of outside directors on the Board. Divergent hypotheses on these measures have emerged from two economic theories, namely public choice and the agency perspective. An empirical analysis investigates the effects of restructuring processes on a sample of Italian municipal utilities. Partial privatisation has been shown to play a significant and positive role, while Board independence from management has a less significant influence. Multi-government utilities have been found to suffer from severe coordination costs, which are not outweighed by scale benefits. Our findings reveal that management discretion is a significant source of inefficiency in municipal enterprises.     

PUBLIC ADMINISTRATION AND THE INFORMATION POLITY

Within the debates in Britain about changes in contemporary public administration insufficient attention has been focused to date upon the significance of new information and communication technologies. In particular, the operational importance of computer networks to government organizations, and of the information flows supported by them, have hitherto been given scant attention. A primary focus for understanding the current transformation processes in both services and organization occurring in public administration should be upon the role and significance of these new information flows. Informational capabilities are increasing throughout government organization and have considerable implications for the reforging of that set of organizations which comprise British public administration and for the relationships between and within them, as well as for the quality of publicly provided services. The shifts occurring in contemporary public administration can be usefully analysed and understood by reference to the new concept of the 'information polity'.     

The Nature of a Public Service

Public services have been misunderstood. They are not simply services in the public sector, they are not necessarily there because of “market failure”, and they cannot be analysed by the same criteria as market-based provision. They have four defining characteristics. They exist for reasons of policy; they provide services to the public; they are redistributive; and they act as a trust. They consequently operate differently from production for profit, in their priorities, costs, capacity and outputs.     

The Communist Ideological Legacy and Serb–Albanian Relations in Kosovo∗

This article uses Central Asian examples to challenge theories of ethnic nationalism that locate its origins in intellectual activism (Hroch), state modernization processes (Gellner), or the rise of mass media (Anderson). Modern Uyghur cultural politics and traditional Central Asian dynastic genealogies reveal related processes used in constructing modern nationalist symbols and pre-modern ideologies of descent. Modern territorial states with ideals of social unification and bureaucratic organization rely upon nationalist discourses to elaborate and rework cultural forms into evidence for the ethnic nation. The state links citizens to institutions through nationalist content used in political discourse, schooling, and public performances. Because such content is presented as authentic but used instrumentally, its contingency and fabrication have to be concealed from view: the culturally intimate spaces of bureaucratic production of culture and narratives are separated from public performances. The creation of genealogies used to legitimate pre-modern states are similar: compositional processes and goals are kept offstage, and little is disclosed in the public historical narratives and performances.     

State, administration and governance in Germany: competing traditions and dominant narratives

The article explores the evolution of competing views on state, administration and governance in Germany from an historical perspective, with an emphasis on the last five decades. To understand the governance discourse in Germany one has to start from different notions of the state. The first part therefore offers a brief, somewhat polemic, overview about different state traditions in Germany in the twentieth and twenty–first centuries. The second part looks at how discourses about the proper role, the appropriate structures and processes of the public sector and its interactions with its environment have changed during the history of the Federal Republic. The analytic focus is on the different narratives about administrative policies, understood as the various scenarios, assumptions and arguments on which competing policy–suggestions for the public sector have been based. The article argues that it is not sufficient to interpret the ups and downs of different discourses and Leitbilder as more or less erratic, post–modern fashions and fads. Instead, the line up of the central catch–phrases, from democratic via active and lean to the activating state, reflect learning processes, driven above all by the political competition creating a continuous demand for 'better', more appropriate narratives to guide and explain current policies.     

The New Mode of Public Governance and Public Accountability in Developing Countries: An Analysis with Particular Reference to Bangladesh

Public accountability is a fundamental element of good governance. All countries all over the world strive to ensure the accountability of public officials by adopting different kinds of mechanisms. Following the liberal democratic tradition, most countries in the world have relied on the legislative instruments, executive means, judicial and quasi-judicial processes, official rules, codes of conducts, official hierarchies, public hearings, interest groups, media scrutiny and so forth for ensuring public accountability. However, in recent years, the new mode of public governance has brought new dimensions to the discourse on public accountability. This new mode focuses largely on the market- and society-centered mechanisms. This article is an attempt to assess the effectiveness of these market- and society-centered mechanisms in ensuring public accountability in Bangladesh. The article has the following objectives:

(a) to explore contemporary debates on the market- and society-centered mechanisms of public accountability;

(b) to sketch the state of public accountability in Bangladesh; and

(c) to analyze the effectiveness of the market- and society-centered mechanisms in view of the contemporary socio-economic and political dynamics of Bangladesh.     

The relationship between competition and efficiency of waste-collection services in the Czech Republic

This paper examines the role of the competition on the waste-collection market. Based on the case study of the Czech Republic, we evaluate the influence of competition intensity on supply side of the market on efficiency of waste-collection services. The rate of competition was approximated by the number of submitted bids to public tenders and efficiency was measured by per capita expenditures for municipal waste-collection services. We developed two regression models – the first model verified a competitive effect on the public procurement market for the provision of waste-collection services; the second model identified factors that affected municipal expenditures for waste-collection services per capita. We concluded that the competition in the waste-collection market increases by organising open tenders for suppliers at regular intervals, by adapting the duration of contracts to economic life of fixed assets, by sustaining pressure on service providers through a change in suppliers or the distribution of contracts among jurisdictions.     

The Public Sector In An In-Between Time: Searching For New Public Values

A number of new governance structures has been introduced in the Danish public sector. These include contract agencies, user boards, boards of directors, marketization, corporatization, involving voluntary organizations in public services, EU-funded state border crossing co-operation, and Europeanization in many forms. Despite their obvious dissimilarities, these governance structures have one thing in common: they challenge the foundations of the public sector and territorial representative democracy by blurring the distinctions between politics and administration; between public and private; and between national and international. If politicians and voters are deprived of the capacity to make these distinctions, political responsibility is bound to fade away. Also, each new governance structure down-loads degrees of indeterminateness in the public sector since they may interact in unforeseen ways and introduce new actors, roles and practices in the public sector. This may cause the development of a more flexible public sector marked by 'local' appropriateness and adaptability but also by a multitude of inconsistent models and principles. To avoid the latter, a general discourse on values and their institutional requirements and the invention of public 'domains' is needed.