Propaganda and the Question of Criminal Intent; the Semantics of the Zachistka

This article seeks to explore the origins and evolution of zachistka (‘cleansing’) and the particular role it played in the second Chechen war of 1999–2005. It argues that zachistka has become part of state, military and media representations of violence, building a psychological environment in favour of war. The article seeks to understand how the propaganda of the Russian Ministry of Defence might have contributed to the perpetuation of war crimes or incitement to atrocity crimes in the region.     

ADMINISTERING BRITAIN'S ARMS TRADE

This article examines the administration of Britain's overseas arms trade through a consideration of the role of the main government departments concerned with its control and regulation - the Department of Trade and Industry, the Foreign and Commonwealth Office and the Ministry of Defence. Additionally it examines the activities of 'arms-length' public agencies such as the Defence Export Services Organisation and International Military Services whose job it is to promote arms sales. It concludes that while the promotion function may (but does not have to) run counter to that of control, the latter is comprehensively and competently administered. If it fails - and it has done so recently - it is because of political intervention and not administrative shortcomings.     

Renewal of local government in Scandinavia: Effects for local politicians

During the last decade, numerous local government reforms influenced by New Public Management (NPM) ideology have taken place throughout Scandinavia. Based on case studies in three Scandinavian municipalities, the article discusses the effects of introducing strategic political management on the role of councillors. We observe a conflict between NPM‐inspired management ideas and a deeply institutionalised, traditional view of councillors as representatives of the citizens, advocating peoples’ interest, defining needs, setting priorities and controlling implementation. Across national and local contexts, councillors find that the reforms challenge their traditional role and have strengthened administrative influence. Historical institutionalism seems to be a fruitful concept to understand resistance towards taking on new role models.     

OPEN SYSTEMS AND CLOSED NETWORKS: POLICY NETWORKS AND THE EMERGENCE OF OPEN SYSTEMS IN LOCAL GOVERNMENT

New information and communications technologies (ICTS) continue to consume an increasing proportion of local government expenditure. Contemporary explanations of why and how these technologies are introduced into organizations, however, are limited to accounts of strategic decisions taken by individual organizations. This article offers a new understanding of why and how ICTS are introduced into organizations by developing the emergent concept of policy networks to analyse the adoption of open systems in local government. In developing this analysis, the article advances the policy networks concept by arguing for a range of sectoral sub-networks which have emerged around the broader ICT network. Following from this, it identifies the principal actors in the local government ICT network, and their relationships. Finally, it presents a case study of the network in action, in the form of an analysis of the adoption of open systems technology in one metropolitan borough council.     

Value-For-Money Audit for Accountability and Performance Management in Local Government in Ghana

Public sector organizations, including local government (LG) entities, continue to resort to value for money (VFM) audit to enhance performance and accountability. Based on the analysis of the consolidated reports on the annual performance-based Functional Organizational Assessment Tool (FOAT)—VFM audit—in Ghana to determine the efficacy of VFM on performance, this article argues that VFM audits constitute a significant public management tool that could enhance LG performance. However, the FOAT reports, like most VFM audits, only provide quantitative evidence, which fails to capture the qualitative or other relevant explanatory factors behind the recorded performance improvement.     

Convergence: The Useful Myth?

Many academics have questioned the thesis (most prominently associated with Osborne and Gaebler's Re-inventing government ) that there is an inevitable and global convergence towards a particular, new style of public management. Yet, despite the ongoing production of scholarly evidence of global diversity, pronouncements of convergence continue to be made by politicians, civil servants and some academics.
In this paper it is suggested that, better to understand this apparent controversy, a more subtle conceptualization of convergence is needed. First, convergence can take place at different stages or levels — for example, there can be convergence in debate, convergence in reform decisions, convergence in actual practices, or, ultimately, convergence in results. There is no automatic succession from one stage to the next: the momentum of convergence can (and frequently does) stall or dwindle at any point. Furthermore, it should be recognized that convergence claims may have a value of their own, whether or not they lead to actual convergence of practice or improvements in outcomes. Convergence, in short, may be a useful myth.     

Defense System in Israel: The State Comptroller's Perspective

The compliance of audited bodies to the recommendations published by the State Comptroller is very important while evaluating the effectiveness of the state audit process. To measure the effectiveness of the State Comptroller's audit the rate of deficiencies' rectification has been taken into account. Audit frequency is defined as the number of audits in audited bodies in a given period. The effectiveness of the State Comptroller's audit carried out in the Israeli Defense Forces (IDF) characterized by a rigid hierarchy was compared with that of the State Comptroller's audit carried out in the Ministry of Defense (MOD) characterized by a less rigid hierarchy.     

Poverty,Ideology and Terrorism: The STAM Bond

This article focuses on the role of ideology in the decision of people who are not from societies’ worst-off socioeconomic groups to join a left-wing terrorist organization. Taking up the sociological perspective of Max Weber, Clifford Geertz, and Raymond Boudon, the author introduces the concept of the “terrorist of the first hour” and considers ideology as a type of social bond. The concept of ideology is here broken down into four dimensions: Social, Temporal, Affective, and Moral (STAM bond). This article also presents data on the ages, sex, educational level, and occupation of the Italian people arrested (2,730) or convicted (528) for crimes of terrorism from 1970 to 2011. Data on Italian terrorists were provided by the General Department of Prisoners of the Ministry of Justice. ¹ 1. The research was conducted between February and July 2011. The author wishes to sincerely thank Sebastiano Ardita—the Director of the General Department of Prisoners of the Ministry of Justice—who gave authorization to collect data on Italian people arrested or convicted of terrorism of which only the Ministry of Justice is in possession. This article considered only data regarding terrorists working to subvert internal order. The articles of the Italian Penal Code regarding “internal” terrorism are articles 270, 270 bis, and 306, and since 2001 further articles have been introduced in order to combat international terrorism.      

AUDIT OR EVALUATION? A NATIONAL AUDIT OFFICE VFM STUDY

This article presents a case study of an important but relatively neglected aspect of the British policy process - the Value for Money (VIM) studies undertaken by the National Audit Office. It analyses in detail the conduct of one particular study, including the reactions of the audited bodies and the parliamentary activity which followed the publication of the NAO report. The case is then used to illuminate what appear to be some more general characteristics of the NAO's approach. It is concluded that NAO VFM work marks an important step beyond traditional audit for regularity and/or economy, and that it significantly enhances democratic accountability. Yet at the same time this work falls short of a full-blooded evaluation. Indeed, it appears to take place within quite prominent constraints, some of which were built into the legislation setting up the NAO but others of which could conceivably be eased, even without new statutory authority.     

Terrorist countermeasures

At the end of 1997 the Israeli Defence Forces (IDF), and their proxies the South Lebanon Army (SLA), remained hopelessly bogged down in a military quagmire which is played out daily in the hills and valleys of Southern Lebanon. As each new week passed more and more Israeli and SLA soldiers fell victim to the Islamic Resistance's (IR) most effective weapon, the roadside bomb, no amount of “preventive patrolling” could manage to reduce the frequency with which these indiscriminate attacks took place, nor did it confine the planting of these devices to the perimeter of the Security Zone. Having recently completed an assignment with the United Nations Interim Force in Lebanon (UNIFIL), Brendan O'Shea, of the History Department at University College, Cork, Ireland, investigates the claims of Nabih Berri, Leader of the Shi'ite Amal Movement and Speaker of the Lebanese Parliament, that the blood‐spattered hills of South Lebanon have now become “Israel's Vietnam.“¹     

An Integrated Model for the Audit,Control and Supervision of Local Government

This article considers the issue of the audit, control and supervision of local government units in a new paradigm. The author argues that the treatment of audit, control and supervision activities in the present paradigm, in which they are treated separately from each other, or only as a ‘control or audit pyramid’, has so many imperfections that it no longer represents a reliable means of modern good governance. The author presents some ideas for the operation of an integrated system of audit, control and supervision for the local government sector, focusing particularly on small, local government units. Although the author's research is based on the case of Estonia, a small, liberal constitutional democracy with an open economy, his ideas are also applicable to other democratic societies.     

Performance Regimes—The Institutional Context of Performance Policies

Performance measurement, targeting, reporting and managing of public services has spread across jurisdictions in recent years. The most usual stance adopted by governments in developing performance policies has been shaped by principal-agent theory and a hierarchy of principal-agent relationships from core executive to service delivery. Such notions have been challenged from several directions, both in theory and empirically. Writers on accountability and those analyzing the “audit explosion” and the growth of “regulation inside government” have pointed to the way in which multiple actors and accountabilities have grown. Drawing on these and other sources this article develops a “performance regimes” perspective that offers a heuristic analytical framework of the main groups of institutional actors who can (but do not always) attempt to shape or steer the performance of service delivery agencies. The aim is to create a framework that can be applied comparatively to study changes in total performance regimes over time and between jurisdictions and sectors.     

Measuring the Impact of New Public Management and European Integration on Recruitment and Training int he UK Civil Service

This article investigates the impact which the institutional development of the European Union (EU) and the new public management (NPM) have had on the process of recruitment and training of senior public officials in the United Kingdom between 1970 and 1995. Information provided by directors of personnel and training has enabled the extent of change observed in three government departments – Agriculture, Transport and Health – to be measured on a numerical scale. This is combined with a historical analysis rooted in practitioner experience. The evidence from both sources suggests that whereas NPM pressures have had a relatively similar impact on recruitment and training practices in all three departments, the response to EU pressure is much stronger in the Ministry of Agriculture than in the Departments of Transport and Health. The EU impact in Agriculture is particularly strong in respect of recruitment and career progression, the only area and the only department in which our index suggests that policy has been more heavily influenced by European pressures than by NPM. These findings reflect the strength of the political commitment to NPM and the power of the central departments in imposing it across Whitehall; and in the case of Agriculture the development of a cadre of senior officials who have almost all had experience of working in or with the EU institutions.     

Another path to customs reform: Mexico's second inspection

This paper presents two theses about reforming customs administration in developing countries. First, that modern customs systems increasingly rely on documentary audit rather than physical control and that the private sector can improve the information needed to strengthen audit. Second, that reform of customs administration in developing countries requires building both accountability and efficiency. The widespread use of Pre-Shipment Inspection (PSI) services by developing countries and Mexico's innovative privatized second inspection supports the first thesis and Mexico's experience with privatizing a key layer of its customs administration supports the second thesis.

This paper examines Mexico's recently introduced Second Customs Inspection which is a novel approach of using private firms to improve the accountability of a customs system. The Second Inspection is uniquely poised to improve both physical control and documentary audit in Mexico's customs by clearly defining the inspection as “rough justice.” “Rough justice"” is an approach to physical customs inspection that recognizes the limitations oftime and space of customs inspections prior to detailed documentary audit. Rough justice is an approach to customs administration that promotes systematic but selective review of contents and documents in the front end of the customs process (inspection) that can be done within reasonable time limits that do not unduly delay trade.     

Policy Transfer as a “Contested” Process

Policy transfer studies have commonly assumed that changes to policies borrowed from abroad are either the result of deliberate efforts to adjust/translate them to fit its receiving environment, or an adaptive response to the cultural and institutional circumstances of the latter. In introducing the concept of “contested policy transfer,” this article will argue that differences between the “original model” and the borrowed one might be actually due to the series of conflicts and negotiations which take place among key bureaucratic actors at the “importer” jurisdiction. The article will illustrate the concept by analyzing the transfer of the Chilean “Programa de Mejoramiento de la Gestión” to the Mexican government, a process which took place between 2005 and 2010.     

RAYNERISM IN PRACTICE: ANATOMY OF A RAYNER SCRUTINY

Rayner scrutinies have become a regular feature of life in government departments. It takes only a few months to conduct a scrutiny but implementation is a far longer process which can absorb much ministerial and official time. This paper describes one of the first Rayner scrutinies — on arrangements for paying social security benefits — from inception to implementation. It relates the scrutiny team's reports to the social security system it was in part reviewing and then traces the way that ministers and officials handled the controversy that the scrutiny team's proposals caused when leaked in an inaccurate form. It concludes by speculating about some wider lessons that might be drawn about the validity of the scrutiny technique; the value of the Rayner label on reviews; the need for independent reviews in bureaucratic organizations; civil service responsiveness to reviews: the political dimension to management issues: public debate and open government considerations, and the indirect consequences of scrutinies.     

PUBLIC EXPENDITURE AND POLICY IMPLEMENTATION: THE CASE OF COMMUNITY CARE

This article explores the contention that the conventions of public expenditure accounting conceal, rather than reveal, the real nature and implications of resource trends. A benchmark — a constant level of service output — is established as a basis for examining the relationship between trends in expenditure inputs and service outputs. Changes in unit costs are identified as the major source of deviation between expenditure and output trends. The impact of resource constraint on policy and policy-implementation is then examined in relation to one, essentially stable, area of policy in the personal social services: community care.
The meaning of the term'policy' is far from straightforward and community care is best understood as the interaction of relatively independent streams of policy, towards service outputs and resource inputs, extant in both central and local government. Mechanisms by which policy streams could be reconciled are of particular interest and an innovative example — joint finance — is examined in some detail.     

The Difficulties and Dilemmas of International Intelligence Cooperation

Stéphane Lefebvre is a former Strategic Analyst at the Canadian Department of National Defence and a former Marcel Cadieux Policy Planning Fellow at the Canadian Department of Foreign Affairs and International Trade. The views expressed here are the author's and do not necessarily reflect the views of any governmental or nongovernmental organizations with which he is or has been affiliated. An earlier version of this article was presented at the Colloque Renseignement et Sécurité internationale, Laval University, Quebec City, Canada, on 20 March 2003.     

The Evolution of ‘Homegrown Conditionality’ in India: IMF Relations

This article explores the historical relationship between the Government of India (GOI) and the International Monetary Fund (IMF) as a successful model for the ways in which a developing country can learn to work with and through multilateral organisations to promote economic and political development while sustaining democratic institutions and relative international political autonomy. In the mid-1960s, India's relations with the USA, IMF, and World Bank were strained after an attempt by these institutions to exert ‘leverage’ over Indian economic policies was exposed to parliamentary debate and the scrutiny of a free press. By the late 1970s, the GOI charted a new course in its interaction with the IMF. In 1981, India was awarded the largest IMF loan to a developing country up to that time. This article will evaluate India's economic reform strategy in the early 1980s and explain the development of the concept of ‘homegrown conditionality’ within the GOI.     

THE CHANGING TERRITORIAL OPERATING CODE OF THE UNITED KINGDOM: EVIDENCE FROM NORTHERN IRELAND

This article investigates the UK's changing territorial operating code. The core theme discussed is that recent trends are captured by the Dual Polity thesis but that the model is undesirable as a medium for territorial management. The contention is that, whilst the conditions which sustained the old Dual Polity of 1920-70 as a credible territorial operating code had disappeared by 1979, the subsequent command code of the Thatcher era failed to subdue the Periphery or deliver stability and acquiesence in territorial management which the Centre craved. In response, the consequent upheavals of the 1980s encourage the Centre to fashion a new territorial code, approximating to the old Dual Polity. However, unlike its 1930 forbear, this recreated Dual Polity involves a sharply attenuated role for local government, leaving a system of sub-central governance heavily populated with quangos and joint boards comparable to a new magistracy and demonstrating the worst aspects of Britain's own emerging democratic deficit. The article employs evidence from Northern Ireland as a model of the new Dual Polity in extremis , arguing that fresh thinking is required in policy-making. The Centre has been willing to countenance innovative new structures for the management of its most intractable territorial problem (Northern Ireland). The article concludes that a similarly novel approach is required for the UK, based on a recognition of the inapplicability of outmoded forms of territorial management, the inescapable consequences of the UK's membership of the European Union, a reassessment of the role of each tier of government, and one which embraces the concept of subsidiarity.