Introduction

In this Introduction, Larkin Dudley and Gary Wamsley reveal a dual intent in this project: to reprint the famous Papers on the Science of Administration and to celebrate critically Luther Gulick's contributions to public administration in order that the critique will help us understand ourselves and our conditions. Gulick's contributions as a man of action are praised, but his misplacement of an organizational conception upon a polity with a distinct constitutional design is questioned. In Dudley and Wamsley's view, American public administration is the study and practice of a key component of our governance process, misfounded on a concept of management in monocentric, hierarchical settings and on a focus of power of an elected executive. From the work of the other writers of this symposium, the authors tease out further some of the contradictions in hierarchy and democracy. Finally, they note that Gulick himself at the age of 93 published a repudiation of his early notions of organization based on hierarchy and, instead, called for a more democratic and participatory system in all agencies.     

“Let's organize”: The organizational basis for stable public governance

This study carries two distinct contributions to extant literature. Theoretically, it introduces an organizational approach to the study of public governance. Empirically, it demonstrates how the organizational architecture of government represents a stable and systemic capacity for public governance across time. The study establishes how stability serves as an enduring feature of public governance and how this is anchored in the organizational architecture of government systems. Moreover, structured flexibility is illustrated by how the civil service adapts to both international organizations and societal stakeholders. Theorizing the organizational dimension of public governance, this study also introduces a design tool that may be useful for deliberately (re)structuring public governance. Empirically, these arguments are probed by a sizable dataset with 13,173 observations across 40 years, consisting of nine surveys of civil servants at ministry and agency levels. The data enables a long-term perspective on government civil servants over nearly half a century, thus allowing for a comprehensive study of the organizational basis for public governance.     

Multiple principals,multiple problems: Implications for effective governance and a research agenda for joint service delivery

The multiple principal problem refers to multiple collective action problems that organizations face when they must balance (competing) interests of multiple stakeholders under joint service delivery. It negatively affects different types of organization, yet we know little about how organizations (can) mitigate it. We expand a framework based on principal–agent theory, review the literature, and consider implications for effective governance of joint service delivery in the public sector. We observe that joint service delivery can lead to free‐riding and duplication in monitoring, lobbying by principals, and increased autonomy for agents, leading to inefficiency. We build a research agenda and tentatively suggest, based on the literature, that an interface approach, where an elected unitary actor is placed in a middle tier between politics and service delivery, might best mitigate the multiple principal problem, which is currently not dealt with effectively in public management.     

Moldova's European Choice: ‘Between Two Stools’?

The article examines EU–Moldovan relations from the perspective of the external governance framework. It reveals some considerable progress in the procedural engagement of both parties. However, the internal instability experienced by Moldova in 2009 is seen to have disrupted these relations, stalling further negotiations and even questioning Moldova's true commitment to Europe. To understand this ostensibly sudden change in Moldova's allegiance to Europe, it is argued that analysis needs to go beyond conventional governance framework(s). Premised on the notion of ‘constitutive boundaries’ a ‘partnership’ perspective offers a more nuanced understanding of the boundaries of ‘the other’, thus revealing the salience of geopolitics and culture in Moldova's relations with the outside world.     

The Politics of Local Policy-Making in Urban Bangladesh: The Case of Rajshahi City Corporation

Some of the contemporary writings provide a different outlook in adopting institutional analysis by claiming that society-rooted politics is foremost in shaping the third world's political institutions. This paper, drawing on an empirical study, puts special emphasis on understanding the nature of society rooted politics in designing the local government system in Bangladesh and how it has shaped local policy-making. By focusing on the policy-making of a municipal corporation, this paper identifies the actors and factors and their roles in the urban local governance process in Bangladesh.     

SYMPOSIUM OVERVIEW: CONCEPTUALIZING NEW GOVERNANCE ARRANGEMENTS

This symposium, ‘Conceptualizing New Governance Arrangements', takes up the challenge of refining governance theory to better integrate work in several disciplines, most notably politics, public administration and law. To this end, we argue for a theoretical framework that profiles three key dimensions of governance: institutional, political and regulatory. This framework, in our view, offers new insights into the nature and operation of various governance arrangements, and offers the potential to assess and measure change within such arrangements over time. After describing our methodology for selecting and analysing the case studies profiled in the symposium, we introduce each of the articles that apply our three‐dimensional governance framework. These articles employ the framework to consider a variety of contemporary governance scenarios that vary widely by sector (environmental, climate change, forestry and education policy) and level of analysis (sub‐national, national, and bi‐national).     

Local Councillors: Between Local 'Government' and Local 'Governance'

With a two-dimensional concept of 'New Public Management' as its point of departure, the article points to the development of a specific Danish model of NPM at the local level of government. In the municipalities the market-oriented NPM dimension has been almost absent and the managerial dimension has been interpreted and translated into a 'governance'-oriented model that combines decentralized self- and user-governance from below with centralized goal-steering from above. This combined model institutes new governing roles including a new leadership role for elected councillors as central goal-steering decision and policy makers. Rather than strengthening the local councillors, the new leadership role has turned out to be problematic for the elected councillors. The problems inherent in the new institutional role as goal-steering decision makers are discussed and arguments are put forward in favour of a more 'governance' and less NPM and government-oriented role for elected councillors. What seems to be needed is another new role that stresses local councillors as co-governors and guardians of an inclusive and democratic form of local governance.     

Integration,functional differentiation and problem‐solving in multilevel governance

The European Union (EU) is currently facing unprecedented challenges to its problem‐solving capacity, such as those represented by pressing transnational crises and by bottom‐up criticisms towards the European integration process. Moreover, the EU is said to compensate its weak input legitimacy with an enhanced problem‐solving capacity. However, the notion of problem‐solving itself has remained remarkably vague in the multilevel governance (MLG) literature. This symposium analyses problem‐solving in different MLG settings. In this introduction, we identify procedural and operational notions of problem‐solving in MLG, and present a structural framework to guide the comparative analyses of multilevel systems along the dimensions of political integration, functional differentiation and decentralization. The contributions to the symposium illustrate how structural elements of different multilevel systems shape both the policy‐making process and the politics of problem‐solving within these systems. In doing so, they pave the way for further comparative research.     

New Public Management and Democratic Participation: Complementary or Competing Reforms? A South African Study

Abstract

Administrative and participatory reforms are common in developing countries, often introduced together and expected to complement each other. Some observers question whether the reforms do complement each other, however, specifically suggesting that the two types reflect different relational and governance patterns. Based on such thought, a “differential relationship influence hypothesis” is presented and tested, investigating whether new public management (NPM) reforms complement or compete with democratic‐participatory reforms. Econometric analysis of survey data shows that South African municipalities adopt NPM reforms more readily when influenced by top–down intergovernmental relationships but adopt participatory reforms more readily when faced with bottom–up civic influences. This evidence supports the hypothesis and indicates that administrative and participatory reforms may not complement each other. The study also indicates a common administrative culture effect on both types of reform adoption—differential relational influences can be tempered by experimental and change‐minded administrators in local governments.     

Elected Mayors: Leading Locally?

The directly elected executive mayor was introduced to England a decade ago. Drawing inspiration from European and American experience, the elected mayor appealed to both New Labour and Conservative commentators in offering a solution to perceived problems of local leadership. There was a shared view that governance of local areas was failing and that elected mayors were the answer. The first local referendums were held in 2001. Most have continued to reject the idea of the elected mayor. During 2012, the coalition government initiated 10 further mayoral referendums in England’s largest cities but only one, Bristol, opted for an elected mayor. Overall, there is no evidence of widespread public support, yet the prospect of more mayors – with enhanced powers – remains firmly on the policy agenda.

Drawing from a decade of research, this paper considers reasons for the persistence of the mayoral experiment, the importance of local factors in the few areas where mayors hold office and the link to current policy debates. Using the authors’ analytical leadership grid, this paper links the governmental, governance and allegiance roles of mayors to the problematic nature of local leadership. It then draws tentative conclusions about the strange case of the elected mayor in England.     

Co-opting Good Governance Reform: The Rise of a Not-so-Reformist Leader in Kebumen,Central Java

Challenging the existing literature, which tends to downplay the impact of good governance reform in post-Suharto Indonesia, the article suggests that greater intervention by international donors, combined with the process of decentralisation, has influenced the dynamics of political competition at the local level. It suggests that the increasing availability of international aid has provided local elites with an option to engage in a new form of patronage politics that relies less on old instruments, such as money politics and violence. By selectively committing themselves to good governance reform, Indonesian local elites can now seek a new source of power in the form of support from international donors, with which they can raise their profiles as ‘reformists’ and consolidate power, only to engage in familiar, if less blatant, forms of patronage politics. The article highlights such a dimension of local politics with reference to the case of Kebumen's former regent, Rustriningsih.     

PERFORMING GOVERNANCE: A PARTNERSHIP BOARD DRAMATURGY

This paper explores the governance of complex public sector partnerships through a detailed case study of a Joint Commissioning Partnership Board (JCPB) in the South East of England. It argues that a theoretical and empirical focus on the instrumental roles of boards has resulted in an under‐appreciation of their symbolic purposes, especially in the context of the governance of inter‐organizational relationships. The paper considers the performative dimension of partnership governance, highlighting the role of the symbolic in institutional enactment. Following a brief overview of governance in public sector partnerships, the case study site for the empirical research is introduced. The instrumental and symbolic roles of management boards are considered from a new institutionalist perspective and a dramaturgical analysis of institutional enactment undertaken to explore interplays of the symbolic and instrumental in strategy formation. Some implications for our understanding of the symbolic in partnership governance are discussed.     

SEARCHING FOR AUTHENTICITY? UNDERSTANDING REPRESENTATION IN NETWORK GOVERNANCE: THE CASE OF FAITH ENGAGEMENT

With the growth of network governance, non‐electoral forms of representation are of increasing significance. The claims of non‐elected representatives are potentially more specific, explicit, and flexible than those of their elected counterparts. The quality of such claims can be assessed in relation to ‘authenticity’, rather than traditional criteria of authorization or accountability. These propositions are explored through first‐hand accounts of ‘faith representatives’ involved in a variety of English urban governance partnerships. Representatives' claims expressed an aspiration to authenticity (which was not necessarily realized) in the sense of seeking ongoing and substantive consent from constituents, rather than assuming consent via a formalized and symbolic moment of election. Network governance may be best served by a mix of elected and non‐elected representation, based upon an understanding of their complementary characteristics and of representation itself as a relational and emergent property.     

Democratic Culture and Participatory Local Governance in Bangladesh

The government of Bangladesh has introduced several initiatives seeking to develop participatory governance at the local level in order to maximise the outcomes of aid-assisted development projects. This article examines the impact of these initiatives and demonstrates that participatory local governance faces a number of challenges in Bangladesh, in particular, absence of democratic culture and tradition and disengagement of citizens, asymmetric distribution of patronage and weak institutions. In theory, political elites and bureaucrats in Bangladesh advocate democracy, accountability and local-level participation, but in practice, they have an affinity for power and centralised authority. Their reform initiatives seem half-hearted and disjointed restricting the growth of democratic culture and participatory local governance at the local level in Bangladesh.     

Determinants of Government Effectiveness

The direct relationship between government effectiveness and the population's well-being has generated a growing interest about the explanatory factors of governance quality. Thus, the aim of this study is to determine the determinants of government effectiveness, in relation to the organizational environment and political and internal characteristics of public administrations. For this, we used a sample composed by 202 countries observed between 2002 and 2008. A World Bank governance indicator represents the government effectiveness. We estimated a panel data dependence model by the Generalized Method of Moments estimator to avoid heterogeneity and endogeneity problems. Furthermore, a CHAID algorithm provides a classification of governance quality according to the predicted determinants.

The results show that government effectiveness is initially explained by the organizational environment, related to economic development and educational status. Later, and according to countries’ income distribution, political constrains and some organizational characteristics, such as gender diversity and government size, may improve governance quality.     

“Most MPs are Not All that Sharp.” Political Employees and Representative Democracy

The article analyses the orientations of political employees in Sweden. It finds that their roles are diffuse: there is no agreement among political employees about whether they are politicians or not, and their mandate is fleeting and unclear. They hold the average politician’s intellectual abilities in low regard, and sometimes take on clearly paternalistic views toward elected representatives. They see little attraction in pursuing a career as elected politicians, because of intrusive media scrutiny and since they hold a view of elected politics as slow, boring, and shallow. The professional route to politics is seen as more fast and fun.     

The oppression/emancipation nexus in ongoing power struggles: Village—Power dynamics in Western Nepal 1

Abstract

How can we gain a more nuanced understanding of power struggles than is assumed under the ‘power as domination’ perception that attributes power to dominant actors who exercise control over others, and thus dichotomises domination and emancipation? This article addresses this question by exploring the power dynamics underlying ‘participatory’ public works in a village in western Nepal. Drawing on an alternative analytical framework that brings together Giddens' ‘structuration’ perspective and the Foucauldian notion of power, the case study illustrates that dominance and resistance are interwoven in day-to-day social interactions, and that the existing social order is continually being readjusted. The article concludes by discussing this study's implications for proponents of empowerment, namely the need to ascertain the emancipatory potentials that are immanent in daily power contestation, and then to develop strategies that compensate for the limitations of everyday struggles.     

WAS LOCAL GOVERNANCE SUCH A GOOD IDEA? A GLOBAL COMPARATIVE PERSPECTIVE

The idea of local governance has gained much prominence but can elected local government be sustained in a role as network coordinator alone? To investigate this question this article focuses attention on four societal roles that local government systems undertake. They can support political identity, underwrite economic development, facilitate social welfare provision or act as a lifestyle co‐ordinator through the practice of community governance. Tying our investigation to the embedded societal roles of local government in different systems opens up the opportunity for a global comparative perspective. It also supports an argument that a sustainable system of local government is likely to be one that is able to combine societal roles to a substantial degree and those systems left with community governance as their key societal function are particularly likely to find themselves pushed to the sidelines of governing arrangements.     

Decentralisation,Governance and the Structure of Local Political Institutions: Lessons for Reform?

Many governments are devolving power to elected local councils, hoping to improve service delivery and citizen representation by bringing officials closer to the people. While these decentralisation reforms hold the promise of improved governance, they also present national and sub-national leaders with a complex array of options about how to structure newly empowered local political institutions. This article draws on cross-national experience and the latest research to identify the trade-offs inherent in structuring local political institutions. The study's specific interest is in the impact of strong, locally elected councils on governance and representation. Proceeding from an empirical basis that competitive elections are vital for the legitimacy and efficiency of local political institutions, the analysis first questions the impact of four institutional features – central versus local control, local executive versus local council authority, local council structure, and the role of parties – on service provision and fiscal solvency. The article's second section analyses the impact of decentralisation on political representation, with a particular focus on the role of institutional design in combating the threat of extremist parties. A final section summarises empirical findings and advances some policy-relevant conclusions.     

Abject Cosmopolitanism: the politics of protection in the anti-deportation movement

This paper argues for an approach to researching citizenship and democracy that begins not from normative convictions but from everyday experiences in particular social, cultural and historical contexts. The paper starts with a consideration of the ways in which the terms ‘democracy’ and ‘citizenship’ have been used in the discourses and approaches taken within mainstream studies of citizenship and democracy, drawing attention to some of the conceptual blind spots that arise. We call for more attention to be paid to contextual understandings of the politics of everyday life, and to locating state, ngo and donor rhetorics and programmes promoting ‘active citizenship’ and ‘participatory governance’ within that politics. It is this kind of understanding, we suggest, that, by revealing the limits of the normativities embedded in these discourses, can provide a more substantive basis for rethinking citizenship from the perspectives of citizens themselves.