Explaining and Justifying Authoritative Decisions: The Case of Controversial Facilities for the Homeless in Rotterdam

Abstract

This article analyses the ways in which local executive leaders rendered account for the decisions taken on where to locate 19 controversial facilities for the homeless in the Dutch city of Rotterdam. Despite the non-participatory nature of the decision-making process, executive leaders acquired a remarkable level of authority for their decisions. The analysis suggests that the accountability strategies employed by local executive leaders contributed substantially to this success. Specific ways of rendering account for the decisions made concerning the locations enabled local executives to develop the political repertoires necessary to make the authoritative decisions they deemed indispensable. Most important among these ways were the executives' recognition of the importance of forming direct, informal accountability relationships with local residents, the proactive rendering of account and the executives' partial control over the forums to which account was rendered. The author concludes that an authoritative ‘Decide - Announce - Defend’ approach may not yet be out of fashion in modern local governance. The findings suggest that we will better understand the practice of public accountability if we supplement the existing conceptual frameworks for analysing and assessing public accountability arrangements with an alternative conception of accountability that focuses on the strategic aspects of rendering account. ^{1 1.}?An earlier version of this article was presented at the 2009 EGPA Permanent Study Group Local Governance and Democracy, in the section themed New Forms of Local Democracy. The author thanks two anonymous reviewers for their constructive comments on an earlier version of the article.      

A Power Horizontal. The Public–Private Enforcement of Judicial Decisions in Russia

Based on fieldwork done in Ekaterinburg, this article deals with the enforcement of legal decisions about economic disputes in the late 2000s in Russia. As state employees, bailiffs are responsible for the implementation of court decisions but their efficiency depends on the cases they deal with. In the most successful cases, they are backed by private enforcers, hired by the claimant and often coming from the law enforcement agencies. This common work reflects an informal public–private partnership from below in which bailiffs and private enforcers co-execute judicial decisions. Such autonomous public–private power configurations at local level challenge the governmental claim to build a ‘power vertical’ in Russia from the top.     

Modernisation,Managerialism and the Culture Wars: Reshaping the Local Welfare State in England

The story of local government over the last few decades is often summarised in the assertion that there has been a move away from institutional authority embodied in the structures of councils towards more complex networks of local governance, incorporating a range of stakeholders and other agencies, alongside a shift of power from local to central government. But local government has been at the centre of wider processes of restructuring - of attempts to modernise the welfare state, and specifically the local welfare state. Underpinning the changes that have faced local government (and created new forms of governance) has been a series of assumptions about welfare and how it is best delivered. These combine notions of community, neighbourhood, personal responsibility, workfare and partnership with a distrust of 'bureaucracy' and professional power. It is in this context that the 'modernisation' agenda - promising cultural change - has been driven forward, paradoxically combining a rhetoric of decentralisation and empowerment with an increasingly direct involvement by the institutions of central government and a range of other state agencies in the practice of 'local' governance. The emergent arrangements are increasingly characterised by forms of self-regulation as well as more differentiated management from above.     

DEVOLVED RESPONSIBILITY AND CENTRALIZATION: EFFECTS OF EEC ENVIRONMENTAL POLICY

The European Community is still a community of nation states in the sense that the obligations created by Community legislation fall on the member states who then have to implement them.
A point much commented upon is that this involves a loss of sovereignty or power for national parliaments and governments. What is less frequently noticed is that it can also centralize into a national government's hands some powers that had previously been devolved to local and other authorities. Since the Community deals largely with national governments, what had previously been local functions have to become national government functions the moment they fall within a Community policy.
This process can be seen at work as a result of the Community's environmental policy. In Britain a variety of administrative agencies have exercised considerable discretion in handling pollution matters. Some functions are handled by district councils, some by county councils, some by specialized regional authorities, eg water authorities, and some by specialized national agencies, eg the Industrial Air Pollution Inspectorate. As a result of the Community's environmental policy, the central government now has greater powers. If the erosion of the tradition of devolved responsibility is not to be resented, it must be justified on the grounds that some larger purpose is being served.     

Between the Welfare State and Local Government Autonomy

Upon what objectives and ideological considerations have the Norwegian parliament developed its policies vis-à-vis local government during the second half of the twentieth century? Have the reforms and decisions made in parliament contributed to increased central control of local policy-making, or have local political authorities been given more powers and autonomy in deciding on local affairs? To what extent have ideological differences between political parties made any impression on the policies adopted? These are the major issues to be addressed in this study of debates and decisions over local government affairs in the Norwegian parliament since the late 1940s. It is observed that the parliament's policies have become increasingly centralised in terms of putting restrictions on the discretion of local decision-makers in acting according to their own preferences. The study also reveals rather clear and stable ideological divisions across the major political parties as far as policies towards local government are concerned.     

Introduction

An important component of local decision making involves determining what probably will happen when a policy change is implemented. Local decisions, after all, are not made without an idea of what to expect. Decisions simply are not made without regard to future consequences. If organizations can ascertain the future effects of policy changes, they can act accordingly. Since many policy decisions at the local level involve fiscal matters, an increasingly predominant method used to measure these future effects of policy changes is economic modeling, especially the simulation and forecasting components of economic modeling.     

Millennium Development Goal 1: poverty, hunger and decent work in Southeast Asia

This article considers three questions: 1) what progress has been made in achieving MDG1 targets?; 2) what challenges remain?; and 3) what more could and should be done? To examine these questions, the article assesses the progress of Southeast Asia in seeking to achieve MDG1. It argues that the region is 'on track' to achieve MDG 1 targets, although significant challenges such as inequality remain. Economic growth, significant structural change and incorporation into global value chains have contributed to MDG progress. However, this is a double-edged sword as exposure to global economic turbulence can increase. The longer-term reduction of poverty, inequality and social exclusion is a question of empowerment of local producers within value chains-a shift in economic power and control through pro-poor strategies strong enough to effect substantive structural change. The article outlines key concepts; identifies the main characteristics of Southeast Asian poverty; outlines what more needs to be done; and concludes by reprising the article's findings and weighing the prospects for 2010-15 and beyond.     

Changing Municipalities in the Information age

Abstract

Political leadership at the local level has attracted growing attention in recent years in parallel with reforms of local government and of the municipal administration, as well as the debate on a shift from government to governance. Considering the power triangle of (i) the mayor, (ii) the municipal administration (executive officers) and (iii) the council, it is surprising that the latter has gained little interest so far. This article analyses how the roles of local councils as representative bodies are assessed by mayors from seventeen European countries and how differences in the perception of councils can be explained. Can differences be explained by institutional settings, the notion of the mayor towards the role of political parties or by the kind of interaction between the mayor and the council – or are specific local conditions and idiosyncratic personal factors crucial?     

From-Long Term To Short-Term Contracting

One can look at the arrival of New Public Management and the extensive public sector reforms inspired by this theory from many angles. Here we examine the shift from long-term contracting, typical of bureaucracy and traditional enterprises, to short-term contracting, borrowed from private sector governance methods. Short-term contracting has three principal uses in the governance of the public sector: (a) contracting with service providers after a tendering/bidding process; (b) contracting with the CEOs of the incorporated public enterprises; and (c) contracting with executive agencies about what they should deliver. Theoretical analysis, supported by substantial empirical evidence, suggests that short-term contracting eliminates the extensive post-contractual opportunism connected with long-term contracting, but is vulnerable to precontractual opportunism. Short-term contracting is not just another public sector reform fad, but constitutes a new tool for government which increases efficiency when handled with prudence.     

Network Governance of Private Sector Development Policy Implementation in Singapore

The discussion examines private sector development policy implementation in Singapore, examining the new role of the government's economic development agencies from the point of changing relationships among public and non-state actors in the policy arena. Singapore's model of private sector development consists of an exclusive network of partnerships among economic development agencies and between these agencies and private sector actors, such as business and organized labour, as integral policy stakeholders. As Singapore has moved within the past 15 years towards its articulated goal of becoming a knowledge-based economy and an industrial hub in the Asia Pacific region, the country's model of network governance is undergoing a gradual reconfiguration to include a greater role for local enterprises in the policy process. The changing institutional mechanics of network governance surrounding the new model of private sector development in Singapore are examined, along with the highlights of some implications surrounding this shift.     

Size and growth in federal executive agencies

Concepts of size and growth have presented a number of problems to organization theorists in a variety of disciplines. Of primary concern is the method by which such concepts are operationalized. Utilizing personnel and budgetary data from a sample of seventy-three federal executive agencies, the effect of size on administrative hierarchy is examined. It is hypothesized that -- as agencies increase in size -- a larger proportion of this increase will be middle-grade and upper-grade Personnel. Coversely, the amount of personnel in lower-level positions will exhibit a decreasing rate of growth.

As a means of specifying the phenomenon of growth, the pattern of agency growth over a twenty-nine year span of time (1948-1976) is examined. The effect of appropriations growth on personnel growth is posited to operate in a positive manner.

Methods of analysis utilized include scatterplot analysis to provide a profile of federal executive agencies. Correlation and simple regression analysis serve as tests of the primary hypotheses.     

Public administration,executive power,and constitutional confusion

This article examines the ambiguity in the meaning of executive power in both the text of the U.S. Constitution and in subsequent judicial interpretations. This ambiguity has had a profound impact on the constitutional position of the public administration. In the recent independent counsel case, the U.S. Supreme Court offered a restrictive interpretation of the President's constitutional powers to remove subordinate officers. This new interpretation could lead to increased congressional control over administrative agencies.

The proper place and function of the public administration, unfortunately for the public administration, have been and remain inherently ambiguous because of the longstanding confusion about executive power in the Constitution of the United States. Richard Neustadt captured this ambiguity nicely when he noted that the two great themes that have characterized the American presidency have been “clerkship” and “leadership.”⁽¹⁾ There is no easy formula to bring clerks and leaders together to make them march in lock-step, and yet the President is clearly both. Today we may tend to emphasize his role as leader with imperial pretensions and Nixonian excesses still relatively fresh in our memories, but this is only a question of emphasis. No one denies that the President is a legally accountable officer who must do the bidding of the Congress. This is the clerkship side of the presidency.

Herbert Storing counsels against any effort to cut the Gordian knot and to try to determine once and for all just what it is our President is supposed to be: clerk or leader. “The beginning of wisdom about the American presidency,” Storing maintains, “is to see that it contains both principles and to reflect on their complex and subtle relation.”⁽²⁾ Following Storing's advice, this essay reflects on the inherent ambiguity of the executive power that provides the constitutional foundation of the public administration. First, we examine the text of the Constitution and the meaning of executive power at the time of the founding. Then we study the confusion that the Supreme Court has created in its efforts to draw practical conclusions for presidential personnel management from the constitutional grant of “the executive power” to the President in relation to the removal power. Third, we examine some of the recent problems of executive power that surfaced in Watergate and became salient in the important constitutional debate over the special prosecutors, those most unwelcome intruders into the inner precincts of the Reagan administration.     

OUTCOME-BASED PUBLIC MANAGEMENT AND THE BALANCE OF POWERS IN THE CONTEXT OF DIRECT DEMOCRACY

We argue that direct democracy forms a specific context for NPM reform, with the voting population as a third agent beside legislature and executive constituting a considerable limit to the legislature's political steering capacity. In this context we expect that NPM will lead to a shift in political power between sovereign, legislature and administration. This article investigates the possibilities of outcome-based public management to ameliorate public action under these circumstances. The findings of the analysis of the NPM reform in the Swiss city of Bern indicate that problems of outcome-based public management are accentuated in a direct democratic system. The puzzling finding is that while the political players themselves see a shift in power between the electorate, legislature and executive, they are doing nothing to compensate this shift.     

Path Dependency and the Reform of English Local Government

This paper uses the concept of path dependency to examine the changes to the political management structures of English local government. We note how the possible experience of decreasing returns among some local authority actors combined with the powerful intervention of politicians within New Labour at the national level led to a significant break from past policy and the imposition of measures to establish a separate executive that was claimed as a radical step forward for local democracy. Using survey data from the Evaluating Local Governance research team ( http://www.elgnce.org.uk ), we explore the establishment of a separate political executive in all major local authorities and map out the style of decision-making that is emerging. We find that some established institutional patterns reasserted themselves in the process of implementation, but that increasing returns are not as great as some theorists of path dependency would suggest and they may be a force for system change as well as for stability.     

Reconsidering Directly Elected Mayors in Ireland: Experiences from the United Kingdom and America

As part of the proposed modernisation of Irish local government a directly elected mayor with executive powers will be introduced in Dublin in 2011. It is then anticipated that the system of elected mayors will be extended to the whole country. However, it is not known what impact this new form of executive leadership will have on the prevailing system whereby city and county managers are dominant. Drawing from experiences in the United Kingdom and the United States, this paper suggests that Ireland needs clear, unambiguous mayoral models. As a political leader with executive powers it is imperative that the mayor's relationships with both the council and the city/county manager are tightly defined. A US-style recall option would also enhance the Irish system.     

Health and Local Government Partnerships: The Local Government Policy Context

This article explores partnerships between health and local government from the local government perspective; placing developments between the two sectors within the wider context of the Local Government Modernisation agenda. A number of commentators have argued that developments since 1997 – in particular the emphasis on community leadership and the new power of well-being – have provided local authorities with an exciting opportunity to reclaim a more pivotal role in shaping the health agenda at the local level. Such a role would be based on promoting well-being and a good quality of life, in keeping with the social model of health. In the longer run this reclaimed role could produce a shift in what has become the main boundary between health and local government: the health–social care boundary. The article reviews developments in three key areas: the health–social care boundary; the core components of the Local Government Modernisation Agenda; and the relationship between regeneration and health. The paper concludes that although progress has been made in regeneration and health and there is potential in elements of the Modernisation Agenda that these do not equate to a paradigm shift in local government's perspective on health. Instead, the social care boundary continues to dominate local government's vision of health. Central to this picture of modest progress is the substantial barrier to more radical change provided by the performance management frameworks governing both sectors.     

Between Regionalisation and Centralisation: The Implications of Russian Education Reforms for Schooling in Tatarstan

This article focuses on post-2000 Russian education reforms, specifically the eradication of regional components from the school curriculum (in 2007) and the introduction of the Unified State Examination (in 2009), as part of a wider shift towards centralisation in Russian education. Based on ethnographic fieldwork in a semi-urban community in the Republic of Tatarstan over the period 2009–2013, the article examines what impact these reforms had on local practices of schooling, on the educational strategies of the population, and on minority language education more widely. It reveals that, while the new institutional framework imposed by the reforms limited the exposure of pupils to regional and ethno-cultural identity narratives, local educators managed to use the limited possibilities within the schools to promote ethnic and regional belonging.     

Governance,federalism and organizing institutions to manage complex problems

In managing complex policy problems in the federal system, state and local governments are organized into different arrangements for translating policy goals into policy outcomes. Air quality management is used as a test case to understand these variations and their impact on policy outcomes. With data from Clean Air Act implementation plans and a survey of state and local air quality managers, five separate institutional designs are identified: (1) central agencies; (2) top-down; (3) donor–recipient; (4) regional agencies; and (5) emergent governance. Findings indicate that some arrangements (donor–recipient and emergent governance) result in notably better air quality than others (central agencies, top-down). Specifically, when designed to allow bargaining between state and local officials, intergovernmental management is still the most effective approach to complex policy problems; but, in absence of this, conventional federalism arrangements are less effective than public agencies self-organizing around shared policy goals.     

From semi-presidentialism to parliamentarism: Regime change and presidential power in Moldova

This article examines Moldova's constitutional change in 2000 from a semi-presidential to a parliamentary regime and analyses what the Moldovan case tells us about the nature of executive power. One of the interesting issues that this case raises is whether our definition of regime really captures the locus of political power. While Moldova has evolved from a semi-presidential to a parliamentary regime, the president is more powerful under the current regime than previous presidents were in a semi-presidential regime. The consolidation of the president's party in the parliament explains the concentration of executive power more than constitutional prerogatives.     

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.