THE HISTORY OF GOVERNANCE IN THE NETHERLANDS: CONTINUITY AND EXCEPTIONS

THE HISTORY OF GOVERNANCE IN THE NETHERLANDS: CONTINUITY AND EXCEPTIONS
W.J.M. Kickert
Reed Elsevier, 2004, 121 pp., €17.85 (pb) ISBN: 9059014359     

DEMOCRATIC GOVERNANCE AND POLITICAL RATIONALITIES IN THE IMPLEMENTATION OF THE WATER FRAMEWORK DIRECTIVE IN THE NETHERLANDS

Multi‐level governance, network governance, and, more recently, experimentalist governance are important analytical frameworks through which to understand democratic governance in the EU. However, these analytical frameworks carry normative assumptions that build on functionalist roots and undervalue political dynamics. This can result in a lack of understanding of the challenges that democratic governance faces in practice. This article proposes the analysis of democratic governance from the perspective of multiple political rationalities to correct such assumptions. It analyses the implementation of the Water Framework Directive in the Netherlands as a paradigmatic case study by showing how governmental, instrumental, and deliberative rationalities are at work in each of the governance elements that it introduces. The article concludes by discussing the implications of a perspective of multiple political rationalities for the understanding and promotion of democratic governance in practice.     

NEW MODES OF CONTROL IN THE PUBLIC SERVICE

Controversy exists regarding whether recent changes in the organization of the public services in the UK and elsewhere constitute a paradigm shift towards a post-bureaucratic form. This article argues that in Britain three fundamental but interlocking strategies of control have been implemented over the last decade. First, there has been a pronounced shift towards the creation of operationally decentralized units with a simultaneous attempt to increase centralized control over strategy and policy. Second, the principle of competition (often attached to the development of market relations but sometimes not) has become the dominant method of co-ordinating the activities of decentralized units. Third, during the most recent period there has been a substantial development of processes of performance management and monitoring (including audits, inspections, quality assessments and reviews), again a phenomenon largely directed towards operationally decentralized units.
Taken together these three strategies do not describe a simple movement from a bureaucratic to a post-bureaucratic form, rather they combine strong elements of innovation with the reassertion of a number of fundamentally bureaucratic mechanisms. This may be a peculiarly British phenomenon, certainly the excessive elements of centralization and formalization appear to depart from the ideal-type of the post-bureaucratic organization. It is argued that this'British trajectory'can best be understood in terms of the continued relative decline of the British economy and the Conservative response to it, i.e. the drive to create a'high output, low commitment'workforce.     

SYMPOSIUM ON CHANGING MODES OF GOVERNANCE IN PUBLIC SECTOR ORGANIZATIONS: ACTION AND RHETORIC

This symposium grew out of the sub‐theme, ‘New Modes of Governance in Public Sector Organizations’, of the European Group for Organizational Studies (EGOS) Conference held in Ljubljana in July 2004. Our aim was to provide a forum to discuss the policy and practice and the space between in public sector management and governance within Europe.     

UNDERSTANDING THE MIXTURE OF GOVERNANCE MODES IN KOREAN LOCAL GOVERNMENTS: AN EMPIRICAL ANALYSIS

Governance research in Korea has been limited to literature reviews or case studies, and little quantitative analysis has been performed to examine varying patterns of governance mixture and their underlying variation. This article provides an important addition to governance research by mapping the terrain of governance mixture using quantitative data. The data were drawn from 96 departments in eight comparable district governments in Seoul, Korea. The results showed: first, all three governance modes – hierarchy, market, and network – existed in a combined form across all 96 departments; second, although all three governance modes were present, hierarchy remained the dominant governance mode across all 96 departments; and finally, the three governance modes were situationally mixed contingent upon the distinct departmental tasks. The implications of these findings are discussed.     

COMPETING TRADITIONS OF GOVERNANCE AND DILEMMAS OF ADMINISTRATIVE ACCOUNTABILITY: THE CASE OF DENMARK

This article offers a study of the changing role of the state in Denmark under the condition of the overall transformation from government to governance with particular emphasis on the corresponding transition from process accountability to performance accountability. It is argued that although new modes of governance have been introduced, and new interpretations of accountability have been proliferated, neither conventional modes of governance nor older interpretations of accountability disappear. Thus, what we see is a co-existence of competing traditions of governance and different and sometimes contradictory interpretations of administrative accountability, which create potential dilemmas and contradictions for the individual civil servant. Employing an interpretative approach to governance and public administration, the article analyses the constitution of competing traditions of governance and interpretations of accountability, and the way in which these competing traditions and interpretations lead to accountability dilemmas for the individual civil servant.     

THE UNITARY STATE AS A SYSTEM OF CO-GOVERNANCE: THE CASE OF THE NETHERLANDS

The original institutional design of Dutch administration and intergovernmental relations is commonly referred to as the 'decentralized unitary state'. However, the views of traditional administrative theorists have been misrepresented. Hierarchy, uniformity and the separation and delimitation of layers of government are not, as often alleged, the theoretical underpinnings of the Dutch unitary state. Rather, classical theory emphasized interdependence, diversity and the dynamic interaction of relatively independent layers of government. This image suggests that Dutch administration does not need a greater separation of layers of government but better means for regulating conflict. It also suggests that the unitary state comes in several guises and cannot be equated with a monocentric system of government.     

BRITISH GOVERNANCE IN TRANSITION: A CASE STUDY OF THE NORTHERN IRELAND CIVIL SERVICE

ABSTRACT

In comparisons of the internal governmental arrangements within states, the United Kingdom (UK) is ordinarily categorised as a unitary state conforming to the ‘Westminster model’. However, this article contends that the changing nature of British governance over the last two decades means that the UK is better viewed as a ‘union state’ that conforms more readily to a ‘differentiated polity model’. Nowhere is the reality of differentiation more clearly exemplif ied than in respect of the British civil service. To illustrate the extent of differentiation, the article presents a case study of the characteristics and trends in the civil service of Northern Ireland for, while the politics of the Province have received great attention, its system of public administr ation has been chronically under-reported. The article considers the changing structures, policy process and impact of public management reforms as well as the restoration of devolved government. Finally, it summarises how the evidence from Northern Ireland informs theoretical understanding as well as its implications for the rest of the UK and beyond.     

HABERMAS’ MODELS OF DECISIONISM,TECHNOCRACY AND PRAGMATISM IN TIMES OF GOVERNANCE: THE RELATIONSHIP OF PUBLIC ADMINISTRATION,POLITICS AND SCIENCE IN THE ALCOHOL PREVENTION POLICIES OF THE SWISS MEMBER STATES

This article assesses the effects different constellations of science, administration and the political sphere display on the policy process in the field of alcohol prevention policy in the Swiss member states. First, it is argued that Habermas’ models of Decisionism, Technocracy, and Pragmatism can be interpreted as distinct modes of governance that take place in today’s policy‐making and implementation. Second, as for the effects of these different constellations of science, administration and politics, the findings from a written survey of the Swiss cantons reported here imply that a broad and adequate policy design is found in cantons with an alcohol prevention policy that is dominated by administrative actors. Output performance proves to be comparatively higher in cantons with a high influence either of scientific actors or of political actors. In an overall comparison, a combined model of administrative dominance with strong affiliation to the scientific community is shown to prevail against the other models considered.     

THE DYNAMICS OF PROFESSIONS AND DEVELOPMENT OF NEW ROLES IN PUBLIC SERVICES ORGANIZATIONS: THE CASE OF MODERN MATRONS IN THE ENGLISH NHS

This study contributes to research examining how professional autonomy and hierarchy impacts upon the implementation of policy designed to improve the quality of public services delivery through the introduction of new managerial roles. It is based on an empirical examination of a new role for nurses – modern matrons – who are expected by policy-makers to drive organizational change aimed at tackling health care acquired infections (HCAI) in the National Health Service (NHS) within England. First, we show that the changing role of nurses associated with their ongoing professionalization limits the influence of modern matrons over their own ranks in tackling HCAI. Second, the influence of modern matrons over doctors is limited. Third, government policy itself appears inconsistent in its support for the role of modern matrons. The attempts of modern matrons to tackle HCAI appear more effective where infection control activity is situated in professional practice and where modern matrons integrate aspirations for improved infection control within mainstream audit mechanisms in a health care organization.     

THE FUTURE OF NETWORK GOVERNANCE RESEARCH: STRENGTH IN DIVERSITY AND SYNTHESIS

The popularity and scope of network governance research and practice continues to expand from its divergent foundations, assumptions and methodological positions. This paper introduces a symposium of papers on this substantial sub‐field by first summarizing the sprawling research endeavour that comprises it. The main theoretical and empirical approaches that have been used to guide it to date are then briefly described, emphasizing recent debates about interpretivism and decentring. Next, it suggests that a robust and interesting future for network governance requires diversity, rather than adherence to a single approach. It is argued that more sophisticated approaches for examining network governance are fashioned through a synthesis of ideas and methods to create an analysis of networks as networks. This is especially the case where some formal analysis of network structure is used in concert with an interpretive examination of action and process. Finally, the papers in the symposium are introduced.     

THE WHITEHALL PROGRAMME AND AFTER: RESEARCHING GOVERNMENT IN TIME OF GOVERNANCE

This article revisits the Whitehall Programme and Rod Rhodes' crucial role in setting it up. It examines the research commissioned for the Programme and how research in this field has changed since the mid 1990s. It confirms that research on Whitehall has become more diverse and specialist – reflecting its apparent hollowing‐out – but that research employing a longer historical perspective does not support an interpretation that government in the UK was ever strongly filled‐in. It also suggests that the study of Whitehall now demonstrates more theoretical ambition than hitherto, and, in the light of the dominance of qualitative research in this field, calls for a more sophisticated methodological debate about qualitative approaches to the study of government and especially their potential contribution to theory‐building.     

SUPRANATIONAL GOVERNANCE OR NATIONAL BUSINESS‐AS‐USUAL? THE NATIONAL ADMINISTRATION OF EU STRUCTURAL FUNDS IN THE NETHERLANDS AND DENMARK

The partnership principle in EU cohesion policy was introduced in order to involve subnational authorities and interest organizations in policy formulation and implementation. In this article we examine how the member states have reacted to this call for a new way of making public policy. We argue that the multi‐level governance literature and the critics of the multi‐level governance framework have not examined implementation structures properly, but have focused on regional influence. We conduct a comparative analysis of the Dutch and Danish implementations of the European Social Fund and the European Regional Development Fund. Our findings show that when examining implementation structures it becomes clear that member states are in full control of the re‐allocation of EU funds. They show that Denmark and The Netherlands have been able to absorb EU cohesion policy within already existing national implementation structures of labour market policies and regional development. One central theoretical implication of our study is that the focus of studies of any fundamental re‐allocation of power resources in cohesion studies should comprise the entire network of implementation rather than the strategies of its individual component actors.     

EUROPEANIZATION AND BUREAUCRATIC AUTONOMY IN THE NEW MEMBER STATES: A CASE STUDY OF THE AGRICULTURAL PAYING AGENCY IN SLOVAKIA

The paper explores the impact of Europeanization on bureaucratic autonomy in the new EU member states using as a case study the Agricultural Paying Agency in Slovakia. The paper shows that Europeanization had limited sustained impact on the personal autonomy of senior officials; however, it requires and sustains the personal autonomy of an extensive cadre of mid‐level and junior civil servants. At the same time, it necessitates and continues to sustain significant change in the way agricultural subsidies are distributed, with a high level of autonomy in implementation and a lower, but still significant, measure of autonomy in policy‐making. These conclusions can also generally be supported by evidence from Lithuania and Poland. In addition, the coercive elements of Europeanization interacted with the temporarily high bureaucratic autonomy in Slovakia to ‘open’ non‐coercive channels of Europeanization of agricultural subsidies and beyond.     

HOW POLICY NETWORKS CAN DAMAGE DEMOCRATIC HEALTH: A CASE STUDY IN THE GOVERNMENT OF GOVERNANCE

This article examines a detailed case study of implementation networks in England using the example of the relocation of the Norfolk and Norwich hospital, which became a flagship PFI project for the Labour government after 1997. The case study illustrates the workings of the new order of multi‐layered governance with both local and national networks from different policy areas interacting. However, it also sheds light on the governance debate and illustrates how in the world of new public management, powerful actors, or policy entrepreneurs, with their own agenda, still have the facility, by exercising power and authority, to shape and determine the policy outputs through implementation networks. It is argued that, whereas policy networks are normally portrayed as enriching and promoting pluralist democratic processes, implementation networks in multi‐layered government can also undermine democratic accountability. Four aspects here are pertinent: (1) the degree of central government power; (2) local elite domination; (3) the fragmentation of responsibility; and (4) the dynamics of decision making which facilitates the work of policy entrepreneurs. All these factors illustrate the importance of ‘the government of governance’ in the British state.     

MINISTERIAL ADVISERS,POLITICIZATION AND THE RETREAT FROM WESTMINSTER: THE CASE OF NEW ZEALAND

Political advisers are an established third element in a number of Westminster‐styled jurisdictions, as they are in New Zealand’s institution of executive government. In this paper we report the initial findings of a research project focusing on the role and accountabilities of ministerial advisers in New Zealand. We locate these findings in the context of a growing body of international and comparative research on the role and accountabilities of non civil‐ or public‐service advisers within political executives and comment on the extent to which the findings affirm or refute the view that the ‘third element’ constitutes a threat to the continued application of Westminster principles and practices in New Zealand’s system of government – once described as more Westminster than Westminster. In doing so, we highlight deficiencies in standard conceptions of politicization and argue that there is a need to more clearly differentiate between its procedural and substantive dimensions.     

EMBRYONIC ASSOCIATIONALISM: NEW LABOUR AND URBAN GOVERNANCE

This article considers the role of ideas in New Labour’s approach to the governance of urban regeneration and characterizes this approach as ‘embryonic associationalism’. This approach contrasts with the economic rationalism of previous Conservative governments and leads to a more determined effort to empower local community groups within the policy process. We analyse the effects of this shift in approach in practice through a comparative case study of changing patterns of governance in different areas of the English city of Sheffield over a ten‐year period. We conclude that while other factors are important in shaping the nature of community empowerment, New Labour’s approach has promoted a political environment in which it is increasingly difficult for local state actors to ignore the voice of local communities. However, while we refer to this as ‘New Labour’s approach’, we are clear that this relates to a tradition of ideas that is far from new in Labour thought.