PETTY BUREAUCRACY AND WOOLLYMINDED LIBERALISM? THE CHANGING ETHOS OF LOCAL GOVERNMENT OFFICERS

Most discussions of the public service ethos ( pse ) have offered polemical accounts of how recent reforms have eroded the distinguishing values of public servants without ever defining this ethos or considering its relationship to other aspects of the public sector. This article considers the deeper and more structural implications of the pse by characterizing it as a political institution that shares the features of'new institutionalism'. It concentrates upon the pse as it manifests itself in local government and uses case studies of four authorities to analyse the extent to which external changes are altering the fundamental values of the ethos. In using the'new institutionalist'perspective it argues that the pse , a vital institution of the UK polity, has been resistant to external pressures for change. Hence, to be successful, public sector reform must take into account the interdependent relationship between the pse and other political institutions.     

BUREAUCRATIC RESPONSIVENESS: EFFECTS OF ELECTED GOVERNMENT,PUBLIC AGENDAS AND EUROPEAN ATTENTION ON THE UK BUREAUCRACY

What determines the bureaucratic agenda? This article combines insights from models of bureaucratic behaviour with agenda‐setting models of government attention to test the effects of elected government, public, and EU agendas on the bureaucratic agenda. Using time series cross‐sectional analyses of subject and ministry coded data on UK statutory instruments from 1987 to 2008, I find strong effects for both the elected government and EU legislative agendas on UK statutory instruments. Furthermore, by breaking the data into different sets based on their relationship with the EU, several logical differences in these effects are found. These results include the EU agenda having exclusive influence on instruments implementing EU directives, and the UK agenda being the sole driver of bureaucratic attention on those instruments that mention the EU but do not implement EU legislation. This article opens a new avenue for research on bureaucracy by approaching it as a unique policy‐making institution.     

THE OMBUDSMAN IN BRITAIN: A QUALIFIED SUCCESS IN GOVERNMENT REFORM

The Parliamentary Commissioner for Administration has not been the dismal failure forecast by critics at the time the office was established in 1967. One alleged defect — not criticizing the substance of administrators' discretionary decisions — is characteristic to a large degree of other admired ombudsmen. Recruiting the Commissioner and his investigators from the civil service has not had expected harmful effects. On the other hand, the office has fallen short of the performance of other ombudsmen with regard to the public's access to the Commissioner (the MP filter), the efficiency of his investigative methods, and certain limitations on his jurisdiction. Failure so far to remove these defects appears to be the result of inadequate comparative research and analysis in support of reformers' proposals, the overly cautious and consensual style of civil service policy formulation, and opposition from members of existing institutions (MPS and the officers of civil service unions) who mistakenly believe that their complaint handling activities are threatened by proposed changes.     

IMPLEMENTING PERFORMANCE-BASED MANAGEMENT IN THE TRADITIONAL BUREAUCRACY OF PORTUGAL

The influence of the New Public Management (NPM) movement in Portuguese administrative reform has been one of the country's noticeable trends in recent decades ( Araújo 2001, 2002a ; Rocha 2001 ). Many governments have aimed to introduce a new managerial rationality in public services. The literature about administrative reform shows that institutional bureaucracies resist change, particularly when it challenges prevailing practices and procedures ( Bjur and Caiden 1978 ; Olsen 1991 ). Thus, the influence of NPM in administrative reform has found different expressions and, in several countries, the introduction of NPM ideas is a limited and superficial phenomenon ( Pollitt 2000 ). This paper contributes to these debates. It examines the influence of New Public Management ideas in Portuguese administrative reform and discusses improvements in the way public services are implementing change using new managerial tools in Portugal: the Activity Plan (AP) and the Activity Report (AR). The data collected from official reports and a questionnaire show that the juridical-administrative model persists and transforms both Activity Plan and Activity Report into little more than a formality, another routine to be followed.     

DIVERSITY AND DOMINANCE IN THE ARCTIC. ETHNIC RELATIONS IN THE GREENLANDIC BUREAUCRACY

Public bureaucracies are increasingly characterized by employee diversity in terms of ethnicity. Investigating relations between ethnic groups in bureaucracies is therefore important. This article focuses on the particularly interesting case of the Greenlandic administration. Being a former Danish colony, Greenland still recruits bureaucrats from mainland Denmark. These work alongside locally hired employees resulting in an administration with different ethnicities, cultures and languages. The analysis of ethnic relations is based on 28 interviews with bureaucrats of Danish and Greenlandic origin. Even though overall relations are found to be largely harmonious, ethnicity makes a difference. Interviewees describe differences in ethnic traits and behaviour and processes of social categorization. Particularly among Greenlanders, Danes are described as dominant and this dominance is reinforced by co‐variation between ethnicity, language skills and education. Finally, inter‐group relations are found to vary with the numerical balance of ethnic groups in different parts of the bureaucracy.     

RESTRUCTURING WEBERIAN BUREAUCRACY: COMPARING MANAGERIAL REFORMS IN EUROPE AND THE UNITED STATES

In much of the international public administration literature, New Public Management (NPM) already appears to be bogged down in a quagmire of critical revisions and assessments. Although some criticisms are well founded, there can be no doubt that NPM represents a trend which has considerably affected public‐sector decision‐making worldwide. This article takes the examples of the Southern European bureaucracies, where NPM‐inspired reforms were introduced later than in the English‐speaking world, but have nevertheless played a decisive role in the political agenda of both socialist and conservative governments. The paper presents the results of a comparative study of administrative reforms in five European countries as well as the USA during the 1980s and 1990s. The comparison is based on three specific dimensions (central bureaucracies’ formal structure; civil service organization; administrative processes), enabling us to systematically measure and compare the progress of the various countries subsequent to the cycle of managerial reforms.     

WEBER AND KAFKA: THE RATIONAL AND THE ENIGMATIC BUREAUCRACY

Max Weber's and Franz Kafka's respective understandings of bureaucracy are as different as night and day. Yet, Kafka's novel The Castle is best read with Max Weber at hand. In fact, Kafka relates systematically to all the dimensions in Weber's ideal type of bureaucracy and give us a much‐contemplated parody, almost a counter‐punctual ideal type, based on four key observations: bureaucratic excesses unfold in time and space; a ‘no error’ ideology generates inescapable dilemmas; inscrutability is a life condition in bureaucracy; civil servants end up walking on the spot, just like the figures in Escher's painting: Ascending and Descending. Nevertheless, Weber and Kafka can both be right. While Kafka looks at the bureaucratic phenomenon through persons who are marginalized, Weber's perspective is historic‐comparative and top‐down. Are the observations of the one more correct than the other? The question is meaningless. As two opposite poles, Weber and Kafka ‘magnetize’ each other.     

THE SEPARATION/SPECIFICATION DILEMMA IN CONTRACTING: THE LOCAL GOVERNMENT EXPERIENCE IN VICTORIA

This article draws on evidence from case studies of local government contracting in the Australian state of Victoria. It argues that one of the key elements of competitive tendering – the separation of purchasers from providers – undermines another of its essential mechanisms – the specification of services – at the point where previously in‐house services are exposed to competition. The managers who are to become purchasers lack the requisite knowledge of services, which instead resides in the minds of the service delivery staff whose work is to be subjected to competitive processes. Separating purchasing from service‐provision ‘distances’ the staff from the managers, impairing employees’ willingness to share the relevant information. At the same time, the introduction of competition increases the probability that staff will withhold that knowledge, and makes it harder on probity grounds to maintain the type of collaborative relationship which might overcome their reluctance to share it.     

ON THE BUREAUCRACY OF BUREAUCRACIES: ANALYSING THE SIZE AND ORGANIZATION OF OVERHEAD IN PUBLIC ORGANIZATIONS

Governments across the globe try to rebalance their budgets by rationalizing overhead operations. When overhead‐reducing policies are adopted, it is important to understand why some central government organizations have a higher overhead than others, and why organizational models to produce overhead efficiencies are used to different degrees. This study focuses on the Flemish context to analyse differences between central government organizations in the size and organization of two overhead processes: human resources management (HRM) and finance and control (FIN). Significant effects are found for autonomy, organizational size, spatial dispersion and budgetary stress, yet effects vary according to whether HRM or FIN is considered and whether the focus is on the size or the organization of HRM or FIN. Our findings have practical implications to get a process‐sensitive understanding of the size and organization of overhead, and theoretical implications as they cast light on factors that shape decision‐making in public organizations.     

BRINGING THE POLITICS BACK IN: PUBLIC VALUE IN WESTMINSTER PARLIAMENTARY GOVERNMENT

We challenge the usefulness of the 'public value' approach in Westminster systems with their dominant hierarchies of control, strong roles for ministers, and tight authorizing regimes underpinned by disciplined two-party systems. We identify two key confusions: about public value as theory, and in defining who are 'public managers'. We identify five linked core assumptions in public value: the benign view of large-scale organizations; the primacy of management; the relevance of private sector experience; the downgrading of party politics; and public servants as platonic guardians. We identify two key dilemmas around the 'primacy of party politics' and the notion that public managers should play the role of platonic guardians deciding the public interest. We illustrate our argument with short case studies of: the David Kelly story from the UK; the 'children overboard' scandal in Australia; the 'mad cow disease' outbreak in the UK; the Yorkshire health authority's 'tea-parties', and the Cave Creek disaster in New Zealand.     

COMPULSORY COMPETITIVE TENDERING IN LOCAL GOVERNMENT: THE FIRST ROUND

This article presents the results of a survey of the initial impact of compulsory competitive tendering (CCT) under the Local Government Act 1988. After an outline of the provisions of the legislation and the mechanisms for their implementation the outcome of the first round of CCT is described. While most services have been retained in the public sector, a number of authorities have chosen to use private contractors. Differences in the patterns between different types of authority are examined. Finally, the paper considers the prospects for subsequent phases of CCT.     

POLICY ANALYSIS IN BRITISH CENTRAL GOVERNMENT: THE EXPERIENCE OF PAR

Programme Analysis and Review (PAR) was an approach to policy analysis introduced in 1970 by Edward Heaths administration as part of a systematic attempt to develop 'rational' government. In the early years some substantial reviews were completed, but from 1973 the exercise faded as less political commitment was devoted to it and institutional compromise and disillusion spread. This paper charts the life of PAR until its official demise in 1979 and analyses its experience, Above all, it suggests that PAR was unable to satisfy the technical, organizational and political preconditions for effective analysis.     

THE ROLE OF GOVERNMENT IN VOLUNTARY ENVIRONMENTAL PROGRAMMES: A FUZZY SET QUALITATIVE COMPARATIVE ANALYSIS

Voluntary Environmental Programmes (VEPs) have become increasingly popular in addressing environmental risks. While VEPs have attracted much scholarly attention, little is known about how they achieve their outcomes. This article seeks to better understand whether and how the roles of governments in VEPs affect their outcomes in terms of (1) attracting participants, and (2) their contribution to a desired collective end. Using fuzzy set qualitative comparative analysis (fsQCA), this article addresses a series of 31 VEPs in the building sectors of Australia, the Netherlands, and the United States. Of particular interest is a better understanding of what configurations of five specific governmental roles in VEPs are sufficient to attract participants and contribute to a desired collective end. Three ideal type roles for governments in VEPs, that are positively related to the two outcomes under scrutiny, are uncovered, and the article concludes with lessons on how governments may be best involved in VEPs.     

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.     

UNDERSTANDING GOVERNMENT: FOUR INTELLECTUAL TRADITIONS IN THE STUDY OF PUBLIC ADMINISTRATION

In this article a conceptual map of the identity of the study of public administration is developed that encompasses its theoretical diversity and richness. It organizes public administration scholarship into four main intellectual traditions: practical wisdom, practical experience, scientific knowledge and relativist perspectives. The objective is to outline the study’s fundamental heterodoxy and interdisciplinarity. While the study clearly has strong national components everywhere, the four main intellectual traditions go across and beyond national traditions of government and of its study.