POLICY CHANGE AND SOFT EUROPEANIZATION: THE TRANSFER OF THE OMBUDSMAN INSTITUTION TO GREECE,CYPRUS AND MALTA

The paper adopts a historical institutionalist approach to Europeanization and argues that policy change is facilitated by three factors. First, it is driven by ‘soft’ mechanisms of Europeanization such as policy transfer. The EU provides the framework for reform and functions as a platform of best practices. Policy transfer mechanisms are implemented in order for member states to pick and choose institutions. Second, domestic mediating factors such as policy preferences are as important as EU obligations. The introduction of the Ombudsman to Greece, Cyprus and Malta demonstrates that hard mechanisms of Europeanization (for example, directives) are not always necessary for change to occur. Soft mechanisms can be equally effective, as long as the political leadership prioritizes the reform. Third, policy change depends on time. Member states adjust their policies and institutions over time. The most common outcome of this adjustment is inertia or incremental change rather than convergence.     

THE RISE OF THE INTERMEDIATE LEVEL INSTITUTION IN BRITISH PUBLIC ADMINISTRATION: THE CASE OF THE ARTS AND TRAINING

During the 1980s there was both centralization and decentralization in the British policy process. The centre was to be responsible for broad policy whilst the institutions in closest contact with those who consumed or used a service were to be responsible for implementation. This style was, in part, a reaction to the perception that organized interests acted as a severe restraint on the centre. Experience, however, demonstrated government's dependence on the cooperation of organized interests and their intermediate organizations. This article argues that effective policy-making requires the formation of intermediate organizations linking macro- and micro-institutions. These organizations are vital for communication, representation and negotiation and therefore they inevitably constrain the centre's freedom. Effective policy requires a partnership between the centre and sub-centre via intermediate institutions and these institutions are likely to become more important as decentralization continues. The role of intermediate institutions are explored via case studies of training and arts policy.     

REGIONAL GOVERNANCE IN ENGLAND: A CHANGING ROLE FOR THE GOVERNMENT’S REGIONAL OFFICES?

Debates about the appropriate territorial scales of government to meet the challenges of economic, political and social change have gained momentum in Western Europe in recent years. In the UK, political mobilization has transformed constitutional arrangements in Northern Ireland, Scotland and Wales. By contrast, in the English regions, a less radical approach has been adopted, but the outcome has been a strengthening of the institutions of regional governance. A key feature has been the enhanced responsibilities of the Government Offices for the Regions, which have been encouraged to build on their traditional administrative functions and adopt a more strategic role. This article explores the Offices’ contribution to regional and local governance. Our central argument is that although increasingly expected to act as a bridgehead between national and sub‐national government and a focus for regional policy coordination, their potential role in filling the missing gap in English regional governance has not yet been fully grasped.     

THE FIGHT OVER DANISH NATURE: EXPLAINING POLICY NETWORK CHANGE AND POLICY CHANGE

The policy network approach is widely recognized for its ability to describe different networks. Adding the concepts ‘policy image’ and ‘cleavage in the party system’ makes it possible to explain policy network change as well as policy change. This argument is supported by a comparison of the Danish decision in 1960 to straighten Denmark's largest river, the Skjern River, to gain farmland, and the 1987 decision to restore the river and recreate the wild nature of the river valley. The fight over Danish nature has historically been a fight between a land reclamation network and a nature protection network – two networks trying to promote different policy images. Coupled with a new (environmental) cleavage in the party system, new policy images connected to the Skjern River decisions led to radical policy changes.     

THE TREASURY AS THE CENTRAL DEPARTMENT OF GOVERNMENT, 1919–1939

Sir Warren Fisher, Permanent Secretary of the Treasury from 1919 to 1939, tried to make the Treasury a 'general staff', for all of Whitehall. He was official head of the civil service, and his Department co-ordinated policy by persuading ministers to decide priorities within a balanced budget. Treasury advice on what policy should be was influential, partly because of the absence of a fully developed Cabinet Office or Prime Minister's Office. Treasury control of expenditure was also necessary to ensure that spending departments conformed to Cabinet decisions on priorities. The Treasury exercised a powerful influence, however, only so long as the Cabinet accepted the financial orthodoxy of balanced budgets.     

PUBLIC MANAGEMENT REFORM IN THE UK AND ITS CONSEQUENCES FOR PROFESSIONAL ORGANIZATION: A COMPARATIVE ANALYSIS

It is often assumed in the literature on public management reforms that radical changes in values, work and organization have occurred or are under way. In this paper our aim is to raise questions about this account. Focusing on three services in the UK, each dominated by organized professions – health care, housing, and social services – significant variations in the effectiveness of reforms are noted. The available research also suggests that these outcomes have been inversely proportional to the efforts expended on introducing new management practices. The most radical changes have been in housing, where, paradoxically, successive UK governments focused least attention. By contrast, in health and social services, management restructuring has been less effective, despite the greater resources devoted to it. This variation is attributed to professional values and institutions, against which reforms were directed, and the extent to which different groups became locked either into strategies of resistance or accommodation.     

TRACING THE NATIONAL MANDATE: ADMINISTRATIVE EUROPEANIZATION MADE IN DENMARK

The article analyses the Europeanization of the Danish national administration. The article offers a revision of the standard image of Danish adaptation to EU membership as being highly centralized and formalized. Rather, the Danish experience involves substantial polity change in terms of new institutions and procedures as well as a change in the overall approach to the EU. Whereas the initial response to membership favoured a strategy for polity adaptation based on centralization – vertical coordination and international bargaining framed by a discourse on sovereignty over a strategy emphasizing the importance of decentralization, horizontal coordination and transnational negotiation – the latter has gradually become much more influential. The analysis suggests two general conclusions relevant to the debate on Europeanization and administrative change. First, it is argued that Europeanization can in fact lead to substantial polity change, which makes the tendency to focus on policy change in Europeanization studies somewhat one‐sided and premature. Secondly, it is argued that the particular mechanisms involved in polity change have not yet received due attention within the Europeanization debate.     

PROFESSIONS,INSTITUTIONAL DYNAMICS,AND NEW PUBLIC MANAGEMENT IN THE DANISH HOSPITAL FIELD

ABSTRACT

This article elucidates the role of professionals as stakeholders in the Danish hospital field. The sociological new-institutionalism has illuminated the role of professions as carriers of rationalities and norms and their role in radical changes in organizational fields, but we are short of contributions that elucidate their role as stakeholders in connection with incremental changes in mature organizational fields.

First we focus on what interests professions can be expected to safeguard. We will argue that professions protect and expand their professional rationalities. In mature fields this must be done in interaction with the state apparatus that in numerous ways regulates the professions.

Second we assume that in mature organizational fields, dominated by professional interpretative schemes, the professions’ safeguarding of interests will be tied to their influence on the creation of new institutions within the existing institutional landscape in the field. More specifically we argue that the professions’ opportunities of influence depend on:

The existing constellationof institutions in the field.     

CHANGING THE DECISION SPACE: EUROPEAN POLICY INFLUENCES ON ENERGY POLICY AND SYSTEMS CHANGE IN SWEDEN

The EU takes a growing interest in governing the energy sector in its member states. Competing with national institutions, policies and organizational structures, it is however not clear whether the EU exerts a strong influence compared to other factors, and if there is such an influence, the mechanisms are not well understood. This paper examines strategic reorientation towards electricity investment in the Swedish energy sector, a ‘frontrunner case’ of Europeanization, and discusses how this change can be attributed to EU policy change, national policy change and organizational field developments respectively. It finds that EU energy policy influence has been notable, and that governance mechanisms that shape beliefs and expectations are strongly at play. However, despite growing EU clout on energy policy, field level and national policy change remain key drivers of the changing decision space in the examined time period.     

POLICY‐LEARNING AND ENVIRONMENTAL POLICY INTEGRATION IN THE COMMON AGRICULTURAL POLICY, 1973–2003

This article uses the Advocacy Coalition Framework (ACF) ( Sabatier and Jenkins‐Smith 1999 ; Weible and Sabatier 2007 ) and a refined version of the social learning approach of Peter Hall (1993) to assess and explain policy change in the Common (Agricultural) Policy (CAP) with a special view on Environmental Policy Integration (EPI). Three stages of EPI are discerned that move from central to vertical and later horizontal EPI, complementing an impact model of agriculture and the environment with a public goods model. Reform debates appear as prolonged and iterative battles over the institutionalization of new ideas which are finally incorporated into the existing policy framework. The policy network increasingly reflects cross‐policy interdependencies and includes superior authorities, rendering the notion of a policy subsystem problematic. Contrary to the social learning model, the major (although not the most radical) change proponent dominates the policy community while superior authorities tend to intervene on behalf of the status quo. The argument is developed on the base of interviews with policy‐makers in Brussels.     

EXPLAINING RADICAL POLICY CHANGE: THE CASE OF CLIMATE CHANGE AND ENERGY POLICY UNDER THE BRITISH LABOUR GOVERNMENT 2006–10

An innovative framework combining the ‘multiple streams’ (MS) and ‘punctuated equilibrium’ (PE) models of agenda‐setting is used to explain the transformation of UK climate change and energy policy under the Labour Government between 2006 and 2010. The coupling of the problem, politics and policy streams by policy entrepreneurs (MS), and changes in policy image and institutional venues (PE), were critical in opening a policy window, disrupting the existing policy monopoly and enabling radical policy initiatives. The case study suggests two revisions to the models: (1) policy windows can remain open far longer than either model typically predicts; and (2) party politics, especially where party competition generates a ‘competitive consensus’, can be important for both initiating and prolonging policy change in parliamentary systems. An important factor typically overlooked by both models is the significant policy entrepreneurship role that government ministers can play, particularly when an issue becomes part of their ‘narrative identity’.     

THE DYNAMICS OF POLICY CHANGE: WBBYING AND WATER PRIVATIZATION

The privatization of the water industry was one of the most controversial and turbulent privatizations of the 1980s. The government undertook the project somewhat reluctantly, then the first plans had to be withdrawn, but eventually, the privatization of the industry was successfully completed in 1989. In this article, we first set out to provide a thorough account of the process of privatizing water, based on primary sources and exhaustive interviews. In doing so, we identity some major problems of established theories of British policy making: the process of water privatization clearly does not conform to any single model of policy making. Instead, individual 'episodes' of the policy process conform to different models. Arguing that existing theories of British policy making may have focused too narrowly on routine decision-making processes, we propose that a theory of the transformation of policy communities is required to understand the dynamics of radical policy change in Britain.     

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.     

PROFESSIONALISM AND PUBLIC POLICY MAKING IN GREECE: THE INFLUENCE OF ENGINEERS IN THE LOCAL GOVERNMENT REFORMS

The influence of Professionals in the formulation of public policies has been an issue of scientific research in the past decade. In this article we deal with a less examined as of this issue. Professional influence is analysed in the context of Greek public policy, where the intensely centralized administration is dominated by the demands of political clientelism. Focusing on the case of the influence of peers in local government reform between 1974 and 1989, the article reveals the role of Trofessiondism in the hesitant decentraiization of functions and resources to local authorities and the initiation of institutions that have allowed the birth and development of new organizations at the central and the local level. Given the shift towards partydirected patronage and the intense party politiciza-tion of professional and trade organizations, the central state aparatus and the local authorities in post-dictatorship Greece, professional influence in putlic policies is seen to be closely related to the rise of professionals in party hierarchies. The catalytic role of professionals in the promotion of reform policies reducing organizational diversity and fragmentation is understood within the context of the contradiction between the need to adapt state structures and practices in a rapidl changing international environment and the preservation of traditional political and acyministrative forces in key positions of the power structure.     

THE CONDITIONS FOR HEALTH AND SOCIAL CARE POLICY: ROUTINES AND INSTITUTIONS IN THE DUTCH CASE OF NEED ASSESSMENT

By focusing on institutions (rules for action) and routines (patterned behaviour) our intention is to contribute to the understanding of government policy and its outcomes in health and social care. We analysed data to show how the relationship between a new idea for a routine and new rules from the government on the one hand, and existing rules and routines in society on the other, as well as the interaction between rule makers and rule takers (i.e. those who are governed by those rules), have an impact on the change or maintenance of routines. The data concern the case of government policy for need assessment (that is, assessment of needs) in The Netherlands. As our discussion will show, even a national government, however, is not able to completely impose its will on other agents in order to change existing routines. The concept of ‘negotiated order’ helps us to understand why. In the case reported here, the Dutch government and the home care agencies had to exercise give and take, the outcome being a suboptimal result for both.     

THE ENTERPRISE FORMULA,NEW PUBLIC MANAGEMENT AND THE ITALIAN HEALTH CARE SYSTEM: REMEDY OR CONTAGION?

Health care services represent an extraordinary experimental ground for introducing wider political and institutional transformations of the state. The adoption of entrepreneurialism into European health care systems has strengthened technocratic decision making over traditional mechanisms of political control. In Italy, in the midst of a severe legitimacy crisis affecting the administrative and political systems at the beginning of the 1990s, New Public Management ideas seemed ‘the’ remedy against the pathological politicization of distributive politics. Much hope has been placed since in a new and ascending group of general managers, entrusted with the ambitious mission of running health care services more efficiently and with the unenviable expectation of resuscitating public trust in welfare institutions. By analysing the 1992 Amato government’s landmark health care reform in its substantive changes, this paper explores the last decade’s main reform trajectories of Italian health care reforms that irreversibly transformed its institutional arrangements and organizational structure, namely the enterprise formula and the regionalization of the health care sector. The paper suggests that the political turmoil of 1992–94 served as catalyst for radical policy change and argues that the single most important explanation for the enactment of New Public Management‐type reforms rests in a new executive reinterpretation of its legislative prerogatives and function.     

Limits of regulatory governance change in the post-developmental state: Korean telecommunications market restructurings from a comparative perspective

This study explains the limits of institutional transformation in Korea from the developmental state to a post-developmental state, in terms of regulatory institutions instead of developmental institutions. The Korean state has taken advantage of the government's discretionary policy changes and power formed by both informal state institutions and informal policy networks, while the regulatory state has placed a special emphasis on social consensus as well as political support for changes of market institutions. New market rules and laws have also been inefficient and ineffective for fair market competition. Limits of regulatory governance change have occurred due to misalignments between informal regulatory institutions in the developmental state and formal regulatory institutions in the post-developmental state. State managers have created discretionary state intervention in policy implementation, politicized the roles of regulatory agencies, and brought ministry-type regulatory state institutions back in. The establishment of effective market institutions has failed due to informal market institutions (unfair and illegal market practices) that have interfered with the policy implementation of new formal market regulations.     

Probation Officer Training, Promotional Culture and the Public Sphere

Recent writing on the professions has given little consideration to the state's potential for threatening a professional formation. This paper argues that the reorganization of probation officer training in England and Wales is an instance of stateled de-professionalization. The process of problematizing the issue and the steps taken to try and mobilize public endorsement for radical policy change are traced, as are the counter-moves of groups attempting to maintain the existing training arrangements. This illuminates two aspects of contemporary public debate in the UK. First, it demonstrates the impact of the requirement that public sector organizations and occupations show 'enterprise' by successful self-promotion. Second, the episode is located within Habermas's concept of the public sphere, in which participation itself – let alone any possibility of achieving the desired outcome – now appears to depend upon relative resources and on attracting the attention of influential news media     

From ‘trial and error’ to major reform: The politics of Medicare demonstration projects

Facing fragmented institutions and partisan polarization, officials in the United States often attempt to engineer policy change without assembling new legislative majorities. To this end, they have increasingly employed demonstration projects, policy innovations undertaken by administrative agencies designed to test alternative approaches to implementation or service delivery on a limited segment of the target population and for a limited period of time. Despite the increasing importance of demonstration projects, they are an undertheorized source of policy change. In this article, we conceptualize demonstration projects as part of a class of experimental institutions that, while incremental in scope, have the potential to ‘scale up’ into more substantial reforms. Data from three Medicare demonstrations suggest that policy change is more likely when programmes generate strong support constituencies; minimize administrative and infrastructural costs; are undertaken in contexts with few veto points; and align with the time horizons of elected officials.     

THE FUTURE OF POLICE AUTHORITIES: MEMBERS VIEWS

Part of the argument about police accountability concerns the role of police authorities, their membership and powers. The Conservative, Alliance and Labour Parties have developed policies which are broadly retentionist – leave things as they are – reformist – change the membership – and radical – empower police authorities to determine policy. The evidence suggests that police authority members' views, though broadly consistent with their party policies nationally, differ in some important respects. Conservatives are increasingly unhappy about the statutory co-option of magistrates. Alliance members appear not to favour an increase in the proportion of nonelected members. And many Labour councillors entertain doubts about the control model.