Place-Based Leadership and Public Service Innovation

This article discusses two matters that are becoming increasingly important in debates about local government: place-based leadership and public service innovation. The troubling international economic outlook means that many local authorities are focusing on ‘efficiency savings’ and the prevailing mantra in public policy circles is ‘do more with less’. This article questions this approach. It aims to contribute to what one chief executive described to us as ‘more with more’ thinking. This approach strives to release the community and business energies of a locality. If this can be achieved the total resources available to improve the local quality of life can be increased, even if state spending is shrinking. A conceptual framework for studying place-based leadership is presented. This distinguishes three, overlapping realms of leadership in any given locality – political leadership, managerial/professional leadership, and community and business leadership. It is argued that the areas of overlap between these realms can be viewed as innovation zones – spaces in which established approaches can be questioned and new trajectories developed. These zones can, however, also become conflict zones with little learning and exchange taking place. Place-based leadership can influence whether such political spaces are used to promote creative problem solving or whether they become arenas for dispute and friction between sectional perspectives. By drawing on a study of the current Digital+Green initiative in Bristol, UK, the article suggests that an imaginative approach to place-based leadership – one that accepts intelligent risk taking – offers potential for improving the local quality of life as well as strengthening local democracy.     

Context matters: A Bayesian analysis of how organizational environments shape the strategic management of sustainable development

Public administration scholars have argued the need for a ‘general theory’ linking strategic management to the context in which public organizations operate. Understanding the interplay between organizational contexts and strategic management responses to urban sprawl and greenhouse gas (GHG) emissions remains an underexplored avenue for empirical advancement of this goal. Using 2015 survey data, we employ a novel Bayesian item response theory (IRT) approach to test how land use policy comprehensiveness, organizational capacities, leadership turnover, and environmental complexities affect the strategic management of smart growth policy in local governments. We find that public organizations harness political, administrative, and community capacities in varied combinations to better achieve their policy objectives, but these influences may not be complementary. Also, policy comprehensiveness generally relates to more strategic activity, while municipal executive turnover offers opportunities and threats to some smart growth strategies. Implications of this research are discussed.     

What a difference a Mayor makes. A case study of the Liverpool Mayoral model

The city region devolution deals have ushered Directly Elected Mayors (DEMs) to the front and centre of the political and governance landscape within English metropolitan regions in the UK. DEMs are invested with high expectations to deliver a range of beneficial urban outcomes. Yet, there is little empirical evidence on the how such Mayoral leadership might act differently to other types of civic leadership to bring about these outcomes. This paper through the deployment of an innovative methodology, a diary analysis, examines how different this leadership model is when compared to its immediate predecessor; the council leader. It finds that the new Mayoral role is less about ‘city management’ and more about ‘city representation’ particularly on the national and international political stage. The paper concludes that this has implications for resourcing this particular leadership model and for the wider research agenda into political and executive leadership of our cities.     

DOES POLITICAL CHANGE AFFECT SENIOR MANAGEMENT TURNOVER? AN EMPIRICAL ANALYSIS OF TOP‐TIER LOCAL AUTHORITIES IN ENGLAND

In many political systems the political neutrality of senior managers' tenure is often cherished as a key part of the politics-administration dichotomy and is subject to formal safeguards. We test hypotheses about the impact of political change on senior management turnover drawn from political science, public administration and private sector management theory. Using panel data to control for unobserved heterogeneity between authorities, we find that changes in political party control and low organizational performance have both separate and joint positive effects on the turnover rate of senior managers. By contrast, the most senior manager, the chief executive, is more sheltered: the likelihood of a chief executive succession is higher only when party change and low performance occur together. Thus the arrival of a new ruling party reduces the tenure of senior managers, but chief executives are vulnerable to political change only when performance is perceived as weak.     

Navigating the dichotomy: The top public servant's craft

How in their day‐to‐day practices do top public servants straddle the politics–administration dichotomy (PAD), which tells them to serve and yet influence their ministers at the same time? To examine this, we discuss how three informal ‘rules of the game’ govern day‐to‐day political–administrative interactions in the Dutch core executive: mutual respect, discretionary space, and reciprocal loyalty. Drawing from 31 hours of elite‐interviews with one particular (authoritative) top public servant, who served multiple prime ministers, and supplementary interviews with his (former) ministers and co‐workers, we illustrate the top public servants’ craft of responsively and yet astutely straddling the ambiguous boundaries between ‘politics’ and ‘administration’. We argue that if PAD‐driven scholarship on elite administrative work is to remain relevant, it has to come to terms with the boundary‐blurring impacts of temporal interactions, the emergence of ‘hybrid’ ministerial advisers, and the ‘thickening’ of accountability regimes that affects both politicians and public servants.     

Managing Middle Earth: The Evolving Role of Local Authority Chief Executive Officers in Auckland,New Zealand

New Zealand is often seen as a ‘test-bed’ for public sector management reform. Indeed, much has been written about the machinery and operation of central government, yet little attention has been paid to the actors and institutions of local government. This article, using evidence obtained through a series of semi-structured interviews with serving and former Chief Executive Officers (CEOs) in the Auckland region, examines the impact upon local authority chief executives of two major reforms within local government. Firstly, the impact of sweeping managerial reforms in 1989, and then secondly reforms to reinvigorate and reinvent the scope and scale of local authorities in the period since 2002. The article argues that whilst local government CEOs in New Zealand are managerially strong, these skills need to be refocused to ensure maximum benefit for local government can be gained from post-2002 reforms.     

PROFESSIONAL POWER PLAY: ORGANIZING MANAGEMENT IN HEALTH CARE

Because of the managerialization of health care and the rise of health care managers, professionals and managers increasingly ‘clash’. To reduce clashes, managerial and professional domains have not only been (re)connected; they have also been restructured. Managers, in particular, have started to make sense of their own ‘professionalism’. Health care managers are professionalizing in order to cope with reform consequences. They have established professional associations, which establish educational programmes, journals, and codes of conduct, in order to define and standardize managerial work. By tracing the evolution of a new profession of Dutch health care executives, and by studying its educational underpinnings, this article will analyse whether the professionalization of managers homogenizes occupational definitions and standards. It will show that managerial education masks ideological struggles over the substance of ‘good’ health care management. Different ‘schools’ have arisen, producing heterogeneity in executive circles.     

The leadership environment of public sector executives

Olshfski uses critical incident methodology to describe the leadership environment of state cabinet officials. The rich data set offers insight into how state executives (1) learn about their jobs, (2) exercise discretion to determine their policy agenda, and (3) operate in the political environment of state administration. She concludes by pointing out discrepancies in our understanding of leadership and offers suggestions for leadership, research, and teaching.

Somerset Maugham is said to have begun all his lectures by saying there are only three things that one must know in order to be a good writer: the only problem being that no one knows what those three things are. The same might be said of leadership research. For example, Stogdill's survey of leadership research contains over 3,000 references and Bass's revision documents over 5,000 references.⁽¹⁾ The preface to Stogdill's survey assesses the status of leadership research: “four decades of research on leadership have produced a bewildering mass of findings…. The endless accumulation of empirical data has not produced an integrated understanding of leadership. “⁽²⁾ A more pithy evaluation is offered by Bennis and Nanus, “never have so many labored so long to say so little.”⁽³⁾ Yet, most people still vigorously believe in the importance of the leader and leadership research.⁽⁴⁾

Recognizing the confusion in the field of leadership research, this study attempts to describe the context within which public executives operate. It is assumed that the executive's operating environment determines the extent to which leadership is possible. Critical incident methodology is used to illustrate how public sector executives conceptualize their environment and how they operate based on that conceptualization. This research is driven by two questions: What is the leadership environment of the state cabinet executive? Secondly, how does the leadership literature facilitate the understanding and interpretation of executive leadership in the public sector?     

Executive Succession and the Performance of Public Organizations

A theoretical framework is developed for the analysis of the impact of executive succession in public organizations. The central concepts in the model are the motives of chief executives, the means at their disposal and the opportunities available for influencing performance. The main hypothesis that flows from the model is that the effect of executive succession is likely to be small but significant. Furthermore, the strength of the impact of succession is contingent on a variety of external and internal circumstances. Seventeen testable hypotheses concerning these contingency effects are presented as a research agenda for studies of top management change in the public sector. The theoretical arguments are illustrated with reference to UK local government.     

Local Political Leadership and the Modernisation of Local Government

Political leadership has been a key element of central government's attempts to ‘modernise’ local government over the past decade, within a discourse that emphasised ‘strong’ and ‘visible’ leadership and the role of leaders and leadership in driving change within local authorities. In the context of such an approach, and also taking account of academic discourse, this article draws upon interviews with nearly thirty individuals in leadership positions in local authorities in England, Scotland and Wales to assess their experiences of leadership and their views of some aspects of the role and work of councils. It suggests that whilst there is broad convergence between the aspirations of government and the narratives that emerge from these leaders on some aspects of local political leadership, there are also differences, perhaps most notably over the relationship between changes to decision-making structures and the loci of political power.     

Navigating the dilemmas of politically smart,locally led development: the Pacific-based Green Growth Leaders’ Coalition

Abstract

Iterative approaches to development under banners such as ‘thinking and working politically’ and ‘doing development differently’ build upon decades-old commitments to fostering locally led and -owned development. These approaches are increasingly popular with academics and development practitioners. In this paper we argue that outsiders seeking to deliver locally led, politically smart programmes need to either accept that competing priorities, results and values will work to limit the extent of true local ownership, or be sufficiently committed to true local leadership to accept that this may well cut against organisational imperatives. Using the example of the Pacific-based Green Growth Leaders’ Coalition, we discuss how politically tricky partnerships challenge tenets of local leadership and ownership.     

THE ‘IRON CAGE’ STRENGTHENED? DISCRETION AND DIGITAL DISCIPLINE

Research on changes in public administration associated with the adoption and use of information and communication technologies (‘informatization’), almost univocally supports the conclusion that shop floor discretion disappears under their influence. We, however, are ill at ease with this direction in thought about discretion. Our unease is based on the scholarly work about practices, organizational learning and responsiveness. In this article, we test the thesis on the relation between informatization and operational discretion in an empirical research of operational discretion and informatization in two Dutch public agencies, both large and both automated. Our findings show that informatization does not destroy operational discretion, but rather obscures discretion. Based on the work of Argyris, we show that the phenomenon at work is ‘participatory boundary practices’, the direct personal ties that keep an organization together. ICTs destroy such links and thereby affect organizational learning.     

Walking and talking chester I. Barnard

The influence of Chester Barnard in contemporary management and organization theorising is substantial but often barely acknowledged. Contemporary authors sometimes ‘borrow’ a fragment to support their case but his was a fundamentally holistic work which sought to interweave and integrate rather than dissect and disintegrate. The research data reported in this paper were not generated to test Barnard's work but in the process of analysis, it emerged that Barnard spoke in a voice which echoed closely the comments of senior executives. Indeed, he is the only theorist to do so in such a comprehensive way. On further reflection, it was found that his work embraces a breadth and depth of conceptual thought which remains unequalled in our vast literature. His intellectual foundations were quite radical for his time, again in a way which does not find contemporary parallel. In what remains a rare gestalt analysis of organization, he manages to blend the contradictions and conflicts of individual and organization and inherent fickleness and ambiguity of social life together with a dexterity and integrity which resembles the practitioners of executive arts rather more than contemporary theorists. This paper seeks to highlight some of the areas in which his work still exposes our current lack of conceptual imagination and ability.     

Doing Things with Words: The Case of 'Management' and 'Administration'

Over the last two decades, management, rather than administration, has become the dominant category through which both academics and practitioners talk, write and argue the organization of public services. More recently, the discourses of leadership have also been increasingly deployed in this context. Based on interviews with UK National Health Service trust chief executives, the article examines these particular discursive changes, exploring what the distinctions do rather than what the categories might represent. It reminds us of some of the things we do (in reality and to reality) when we deploy such words, especially in the debate about control. It also suggests possibilities for disturbing the dominance of the terms that are generally axiomatic in constructing arguments about the public sector; a dominance that has come to favour the interests of some as it denies the interests of others.     

Governance in the UK Public Sector: the Involvement of the Governing Board

Governing boards are a prominent feature of many public sector organizations today. These boards have been modelled on the private sector board of directors. Like company boards, one of their main functions is to provide strategic leadership and policy direction for the organization. The role of managers and chief executives is to implement this. This paper examines the extent of involvement of one public sector board, the school governing body, in strategic activity. Using empirical evidence from a number of semi-structured interviews conducted in schools, its findings indicate that governing bodies are not involved at a high level in strategy within schools. Rather, headteachers are more likely to be undertaking this activity. Reflections are made about the relevance of the 'board of directors' model for both governing bodies and the public sector more generally.     

Reframing the role of Australian mayors: an update and rejoinder to Grant,Dollery and Kortt (2016)

Recent moves for local government reform in several states of Australia have focused in part on a perceived need for more effective civic leadership, and in particular the role of mayors. Proposed legislation in New South Wales and Victoria would expand the responsibilities of mayors in several areas, such as community engagement, partnerships with key stakeholders, strategic planning and providing guidance to the chief executive officer. In 2012 the Australian Centre of Excellence for Local Government (ACELG) published a discussion paper that canvassed these issues as well as the way in which mayors are elected. That paper elicited a strongly adverse critique by Grant, Dollery and Kortt, now published as an article in this issue of Local Government Studies. Regrettably their critique failed to offer a constructive contribution to the debate sought by ACELG, and the article contains a number of significant errors and misleading statements that demand a response.     

ASSESSING THE PERFORMANCE OF DEPARTMENTAL CHIEF EXECUTIVES: PERSPECTIVES FROM NEW ZEALAND

This article examines the new approach to specifying and assessing the performance of departmental chief executives in New Zealand introduced in 1988 by the fourth Labour government (1984–1990). Drawing on the findings of a series of interviews with ministers, chief executives and other senior public servants conducted between late 1989 and late 1991 by a number of researchers, the article outlines the origins and implementation of the new policy framework, and evaluates its strengths and weaknesses. From the evidence available to date, it appears that the new model has won the support of most of the parties directly affected, and that it has enhanced the accountability of chief executives to their portfolio minister(s). However, the implementation of the new regime has highlighted the inherent problems of assessing the performance of senior personnel in the public sector and of imposing sanctions in the event of substandard performance. In addition, various issues of a constitutional nature have arisen concerning the roles and responsibilities of chief executives, the balance of power between chief executives and their portfolio minister(s), and the proper role of the Prime Minister and Cabinet in the new accountability framework.     

Leaders without Leadership: Surrogate Governments in Poland

Abstract

The subject of this analysis is a situation observed in Poland and, in recent years, other countries of Central and Eastern Europe, in which the leadership of the executive is located outside a constitutionally defined government. A representative situation in which a prime minister is controlled by a party leader without a formal government position is defined as a ‘surrogate government’. Five Polish cabinets in the period 1991–2019 met the preliminary criteria of ‘surrogate government’; of these, the cabinets of Beata Szyd?o and Mateusz Morawiecki come closest to fulfilling the criteria completely.     

Assessing changes in gubernatorial power

A common measure of the formal powers of American governors is examined over three time periods and compared with a more recently developed measure that emphasizes the chief executives’ appointment power. The changes over time reveal that governors are gaining in formal authority primarily because of increased veto power and lengthier tenure. A multivariate statistical analysis reveals that governors with greater formal powers tend to be found among more affluent and industrialized states.     

The Quest for Leadership Legitimacy among Singapore Malays

Abstract

Much has been written about the problems and concerns affecting the Malay ethnic minority in Singapore. These include issues such as their socio-economic situation, relatively low educational performance, and increasing incidences of social ailments like high rates of drug addiction, divorce and youth delinquency. In the context of Singapore's multiracial and multi-religious fabric, little has been articulated about what is here argued to be a core issue of the ‘Malay plight’, namely, the legitimacy of the Malay political leadership. Apparently both the ruling-party-affiliated Malay politicians and their Malay opposition counterpart have been at odds with their perceptions and predispositions towards this particular issue. It is here that a bold, albeit controversial, alternative model called the ‘collective leadership’, was publicly goaded by the Association of Malay/Muslim Professionals in both their 1990 and 2000 National Conventions, which requires due consideration. Perhaps at a time of a changing Singapore society, this alternative or its variant could go some way towards mitigating, if not resolving, the long-standing Malay plight, and thus, benefit not only the Malay minority itself, but Singapore as a whole.