How to Improve the Outcome of State Welfare Services. Governance in A Systems-Theoretical Perspective

Much governance literature deals with the limited capacity of the state and the market to govern core state welfare services such as education, scientific research and healthcare. Rather less attention has been focused on how the outcome of these services can be improved politically. An analysis of Niklas Luhmann's systems theory (Luhmann 1997a, 2000) leads to the hypothesis that self-governance, that is, a combination of professional autonomy and public peer-evaluation, is a superior strategy. Though this may seem counterintuitive at first glance, this paper shows that it corresponds to well-rooted principles of public administration and, in the sphere of education, to empirical findings on school choice and school effectiveness. This raises new perspectives for future comparative governance studies.     

The Impact of New Public Management Reforms on Public Servants' Ethics: Towards a Theory

Recent years have witnessed an increasing concern about the impact of New Public Management (NPM) reforms on public servants' ethics. The academic literature about this topic is still characterized by considerable confusion and the article proposes a falsifiable theory as a way out of this. Specifically, it demonstrates that, when all the claims in the literature are translated into the proposed conceptual framework, they amount to an integrated set of propositions (that is, a theory) about the causal relationship between organizational processes (as changed by NPM-reforms) and public servants' ethics. Such an integrated theory is possible because, although the normative positions taken by the authors are clearly rival ones, their empirical claims are complementary. With the diverse claims thus integrated into one theory, the article provides a basis for empirical research and for the NPM-ethics debate to proceed in a more explicit and systematic way.     

Strengthening Public Administration Research: Identifying Boundaries and Horizons

Since the early days of the field, public administration research has been a work in progress. Many authors have struggled to find the proper role of research in the field. Interest in the topic intensified over the last couple of decades, as a perception developed that the quality and usefulness of work had fallen decidedly behind other academic disciplines. While a rich literature has developed debating the merits of public administration research, the resulting product does not provide a clear direction for reform-minded researchers to follow. In this article, we seek to organize this material in ways that will make it more useful. Our analysis identifies hard and soft barriers preventing progress and examines three dilemmas facing public administration researchers: theoretical versus conceptual research, academically sophisticated methods versus widely accessible methods, and an academic versus a practitioner focus. Through our discussion of these dilemmas, we seek to clarify the issues facing researchers and help them make more informed choices.     

Cyberterrorism and Cyber Attacks in the Public Sector: How Public Administration Copes with Digital Threats

Cybersecurity concerns among citizens and public administration officials are considered to be one of the major barriers to e-government implementation. While cyberterrorism is on the rise, the operational state of cybersecurity in the public sector appears as a black box and previous literature has scarcely examined how public authorities perceive and cope with cyber attacks. This study investigates public employees’ attitudes toward cybersecurity in the public sector, as well as the arrangements and measures in place to protect sensitive governmental data and securely manage it for privacy and regulatory compliance. Thus, it contributes to the e-government literature by presenting a comprehensive framework of cybersecurity in the public sector and by providing empirical evidence thereof. Furthermore, it gives an insight into the prevalent attitudes and cybersecurity infrastructure within the realm of public administration. Finally, the article derives research and managerial implications and provides suggestions for future research.     

Unpacking the Global Perspective: Examining NISPAcee Region-Focused Public Administration Research in American Scholarly Journals

Comparative and international public administration research in the United States (US) has enjoyed moments of both prestige and inattention over the last several decades, variation that is important in that it reflects the efforts of a scholarly field to contribute to improved individual and organizational performance. These contributions are, in and of themselves, worthy of attention and critical reflection. This article examines public administration research focused on the Network of Institutes and Schools of Public Administration in Central and Eastern Europe region published in US-based academic journals from 1997 to 2012, discussing trends that have characterized empirical and conceptual research during that period. The article concludes with comments on collaboration in public administration research.     

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.     

Weberian Public Administration Versus New Public Management in Eastern Europe: The Case of Romania

As a recent member of the European Union (EU), Romania aligned its public policies to Westernized models of civil service reform. This article critically analyzes the impact of Human Resource Management (HRM) models as compared to a Weberian Easternized public administration culture, which continues to display strong hierarchical relationships, rather than the “networked” governance favored by some Western European countries.

The focus will be on the development of HRM policies and practices, taking as a set of case studies Romanian central government organizations. The key problem to be addressed is to understand why such organizations remain locked in ineffective systems of personnel administration. Yet, Romania, along with other Eastern European states, has been exposed to international reform movements in public management through policy transfer. The article will look for evidence of New Public Management (NPM)-type practices, in addition to HRM.

Moreover, the countries of Eastern Europe are far from homogeneous, and so an understanding of both the institutional and cultural context is crucial to ascertain the acceptability of NPM. In the case of Romania, this article considers HRM developments in a multi-culturally influenced state, which has also experienced Socialist regimes. However, policy innovations have started to appear, not only as a consequence of the international diffusion of “good practice” and “policy learning, ” but also stemming from the demands of European directives. Thus, the aim of this article will be to assess the role of policy learning in relation to HR reform in the public service.     

The Working Out of Modernization in the Public Sector: The Case of an E-government Initiative in Greece

It has become common place for governments to initiate electronic-government projects in order to reform public administration. This paper seeks to explore the ways in which an e-government project, as a potential mode of reformation, is established and made to work, and then, further, to account for some of its consequences for conventional public administration. To do so we draw upon a detailed empirical study of a Greek e-government initiative, the establishment of Citizen Service Centres (CSCs). CSCs represent a significant part of Greece's e-government strategy, which has sought to modernize public administration and make the provision of public services more efficient, accessible and responsive to citizens. Drawing upon Foucault's work on power/knowledge we show that the e-government initiative is established through various technologies of power that intend to discipline public sector staff towards a particular mode of working. We also illustrate that the establishment of these modernization practices is the outcome of considerable negotiation, improvisation and enactment as different occupational groups seek to collaborate (or not) across professional and institutional boundaries. Finally, we show and argue that rather than reforming the provision of public services, such e-government based modernization projects are more likely to reproduce, in more complex ways, the long established public sector practices it sought to change.     

Bayesian Inference in Public Administration Research: Substantive Differences from Somewhat Different Assumptions

Abstract

The purpose of this article is to point out that the standard statistical inference procedure in public administration is defective and should be replaced. The standard classicist approach to producing and reporting empirical findings is not appropriate for the type of data we use and does not report results in a useful manner for researchers and practitioners. The Bayesian inferential process is better suited for structuring scientific research into administrative questions due to overt assumptions, flexible parametric forms, systematic inclusion of prior knowledge, and rigorous sensitivity analysis. We begin with a theoretical discussion of inference procedures and Bayesian methods, then provide an empirical example from a recently published, well-known public administration work on education public policy.     

Public administration in Marshall Dimock's textbooks

This article examines the relationship between Marshall Dimock's positive, broad-based concept of public administration and his approach to writing undergraduate textbooks. Analysis shows that both Dimock's American government and public administration textbooks provide a different slant on public agencies than that available in most current introductory volumes. In particular, his American government textbook is more positive in tone about agencies than are its modern counterparts. The public administration textbook has comparative material that rarely appears in introductory-level textbooks.

This article analyzes how Marshall Dimock's conception of public administration as an important area of study with links to policy and leadership anchored his textbook writing. In the 1950s Dimock co-authored two popular textbooks for basic undergraduate courses, one in American government and the other in public administration.⁽¹⁾

Scholars still debate what textbooks in either field should teach students about public agencies. Cigler and Neiswender argue that current American government textbooks portray administration in a negative light. All authors see bureaucracy as a problem of some sort, few explain the role administrators play in shaping policy and none discuss reasons to enter the public service.⁽²⁾ Cigler and Neiswender suggest that American government textbooks must change to aid accurate perceptions of the administrative role. In particular, they believe the texts must add material on the public service as a profession and compare American agencies with those in other nations.

Since public administration textbooks are a key way that majors in the field learn material, debate ensues on what material they should contain. Recent articles explore how textbooks define key terms such as policy and how they integrate the work of various theorists.⁽³⁾

While all widely-used textbooks deal with both the political environment and internal agency functions (e.g., personnel, finance), no consensus exists on how to allocate space between political and managerial concerns nor on exactly which subtopics should be covered. No consensus exists on how much space should be devoted to policy making and policy analysis with some textbooks covering this topic and others skimming it lightly.

One often cited problem with contemporary texts is the lack of a comparative focus and a concomitant need to internationalize the curriculum.⁽⁴⁾ The thrust of current proposals is that students need a more broad-based education to prepare them for global leadership.

Interestingly, Dimock's approach to public administration led him to write textbooks that in some ways surpass what is available today. While the majority of the topics he presents (and their ordering) are similar to current efforts, he offers unique emphases that deal with the above mentioned criticisms. Far from being an exercise in academic nostalgia, examining Dimock's textbooks is a useful way of giving current writers new insights.

To appreciate Dimock's approach to textbook construction we first have to identify the core concepts behind his approach to public administration education. Afterwards, we can analyze the treatment of public agencies in American Government in Action, relating it to Cigler and Neiswender's critique of contemporary textbooks, and -examine how various editions of Public Administration conceptualize the field.     

Regulating Markets: The Real Costs of Poly-Centric Administration under the National Health Insurance Scheme (1912–46)

Using a transaction cost perspective, this article explores the administrative costs involved in quasi-market systems of public service delivery. Employing the historical example of the interwar National Health Insurance scheme, it revives Beveridge's early criticisms of the duplication and expense incurred by the utilization of approved societies for benefit administration purposes. To this we should add the costs incurred by central audit and actuarial evaluation, the main mechanisms through which the societies were centrally regulated. The article concludes that, thanks to regulatory requirements, this poly-centric system of public administration was more expensive than a state-run equivalent – and that this message has significance for recent reforms. In the course of the analysis, the narrowness of a 'pure' transaction cost perspective is demonstrated and common assumptions concerning distinctions between 'the state and the market' in administrative structures are drawn into question. The division of public administration into these two typologies is arguably based on a false dichotomy.     

Public Value Dimensions: Developing and Testing a Multi-Dimensional Classification

Further integration of the public value literature with other strands of literature within Public Administration necessitates a more specific classification of public values. This article applies a typology linked to organizational design principles, because this is useful for empirical public administration studies. Based on an existing typology of modes of governance, we develop a classification and test it empirically, using survey data from a study of the values of 501 public managers. We distinguish among seven value dimensions (the public at large, rule abidance, balancing interests, budget keeping, efficient supply, professionalism, and user focus), and we find systematic differences between organizations at different levels and with different tasks, indicating that the classification is fruitful. Our goal is to enable more precise analyses of value conflicts and improve the integration between the public value literature and other parts of the Public Administration discipline.     

An Empirical Analysis of the Acceptance of E-Procurement in the German Public Sector

The increasing governmental spending and simultaneously declining income of municipality are two of the most significant challenges of the 21^st century. The introduction of the Internet and innovative information and communication tools over the last few decades have led to a cost saving and efficiency advantage in many areas. By far, public administration has not fully profited from these opportunities and advantages. This article seeks to understand the underlying barriers of technology implementation, namely e-procurement, within the public administration area by analyzing the key barriers of central decision makers within the organization. The empirical findings of 289 respondents from the German public administration show that the barrier typologies are identified and that they have a strong impact on the resistance of implementation. However, the collected data could not verify the theoretically postulated relationship between high resistance and low implementation of the new technology.     

Governance in Whitehall

Governance theory raises conceptual and theoretical questions about the coordination of complex social systems and the evolving role of the state within that process. A central aspect of the governance debate focuses on the ability of national governments to address salient social issues. This article examines the British Labour governments' attempts to facilitate cross-departmental inter-organizational collaboration within Whitehall in an attempt to develop innovative responses to seemingly intractable social problems. The government's desire and strategy to increase its capacity to orchestrate 'joined-up' government can be interpreted as both an acceptance and a response to the challenges of modern governance. The article locates the structural, procedural and cultural responses to this challenge within the theoretical and analytical framework of governance theory. It concludes by suggesting that meaningful change in the way public policy is designed and implemented may well demand a more deep seated reappraisal of the structure of Whitehall and the dominant values of the British political elite than is currently anticipated.     

"Global Civil Society" and the Political Depoliticization of Global Governance

Activists, officials, and academics alike have often linked observations about an emerging global civil society to an incipient democratization of world politics. Global civil society is assumed to bring public scrutiny and "bottom-up" politics to international decision making "from outside" formal political institutions. Based on an analysis of uses of the concept of global civil society in 1990s global governance discourse (especially related to the major UN world conferences), this paper argues that the presumed democratization of world politics is better understood in terms of a double movement: on the one hand, "global civil society" depoliticizes global governance through the promotion of "human security" and "social development"; on the other hand, the emerging international public sphere (in the UN context) operates as a subsystem of world politics rather than opposing the system from outside. Practices of depoliticization are thus part of the political logic of (neo-)liberal global governance. The argument draws on Luhmann's systems theory and Foucault's analysis of governmentality.     

Introduction: Human resource development symposium

ABSTRACT

The impacts of information technology (IT) on public administration and the public sector are assessed by analyzing the empirical research reported in more than 1,000 issues of recent research journals (published between 1987 and 2000). These impacts are categorized in terms of four broad taxonomic domains and 22 specific impact categories. Almost half of the 230 specific findings identify changes in the capabilities of public sector units to perform functions and more than one-fourth of the findings involve changes in patterns of interaction among political actors. Relatively few IT-related changes affect the distribution of values or the orientations of political actors. In general, the highest proportions of positive impacts from IT are associated with the efficiency and rationality of behavior by units of public administration. The higher incidences of negative impacts tend to involve the more subjective effects of IT on people, in their roles as private citizens (e.g., privacy) or as public employees (e.g., job satisfaction, discretion). It is striking that there are relatively few grounded, empirical studies of the impacts of IT on public administration in the journals analyzed. About half of the empirical studies focus primarily on local level units of public administration, and most studies employ case-study methodology, with nearly one-half of the studies reporting on non-U.S. sites. The summarized and detailed findings in the article are offered as building blocs for more grounded theory on the impacts of IT on public administration and the public sector.     

Decentralisation's Effects on Public Investment: Evidence and Policy Lessons from Bolivia and Colombia

This paper examines decentralisation in Bolivia and Colombia to explore its effects on the uses and spatial distribution of public investment, as well as government responsiveness to local needs. In both countries, investment shifted from infrastructure to social services and human capital formation. Resources were rebalanced in favour of poorer districts. In Bolivia, decentralisation made government more responsive by re-directing public investment to areas of greatest need. In Colombia, municipalities increased investment significantly while running costs fell. Six important lessons emerge from the comparison. For decentralisation to work well: (i) local democracy must be transparent, fair and competitive; (ii) local governments must face hard budget constraints; (iii) central government must be scaled back; (iv) significant tax-raising powers must be devolved; and (v) decentralisation is composed of distinct, separable components, the sequencing of which is important. Finally, (vi) what decentralisation achieves, and whether it is advisable, hinges on how central government behaved pre-reform.     

Curbing Corruption in Public Administration: A Case Study from Italy

The aim of this article is to verify whether the historic sentence, no. 500/1999 of the Italian Legitimacy Court (Corte di Cassazione) in Plenary Session, may have contributed to diminishing bribery in Italy, by increasing the area of liability for both civil servants and the public administration. The empirical analysis is based on a case study conducted in Sicily, in the province of Catania, using a unique data set. The main results of the article are: paying bureaucrats by means of an incentive wage regimes may not be effective in reducing corruption; an extension of the liability rule for the public administration and civil servants may discourage the phenomenon of bribery; and, the perfect specification of property rights helps to reduce corruption.