NARRATIVES AND DILEMMAS OF LOCAL BUREAUCRATIC ELITES: WHITEHALL AT THE COAL FACE?

The worlds of local bureaucrats are under researched and under theorized compared with those of civil servants in core executives. Yet local bureaucratic elites, sitting as they do between central states and localities, are key actors in governance networks. In England, the role and responsibilities of local bureaucratic elites has been transformed since the days of professionalized officers heading departmental structures reporting to committees, firstly by NPM and politicization in the 1980s and 1990s and, more recently, by political management reform introducing a separation of powers. Drawing on interviews in 15 local authorities, this paper examines the changing narratives and dilemmas of local government elites. In particular it explores, but argues against, early expectations that the creation of an elected executive, with considerable devolution of decision-making responsibilities to individual cabinet member councillors, has meant a move closer to the logics of the 'Whitehall mandarin' tradition by local government chief officers.     

CHANGING PATIERNS OF BUDGETING IN ENGLISH LOCAL GOVERNMENT

Worsening financial circumstances have prompted local authorities to review the appropriateness of traditional budgetary arrangements. Using Wildavsky's concept of incremental budgeting as a guiding framework this paper examines how and why authorities have altered their budgetary processes. Results indicate that underlying incrementalism is the assumption of growth, although certain aspects of incrementalism are more affected than others by declining revenues.     

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.     

DECISION-MAKING IN CENTRAL AND LOCAL GOVERNMENT IN THE ABSENCE OF POLITICAL MAJORITY

A possible outcome of the next general election is that no party will have a majority in the House of Commons, a situation experienced only briefly in recent central government. In local government, by contrast, more than half the county councils in England and Wales and many district councils have no overall political majority. Some have been so for many years. This paper examines the style of decision-making in one such local authority, Cheshire County Council, in terms of the roles of politicians and officials and the relationship between them. Recognizing the constitutional differences between central and local government, it goes on to discuss how much of this experience would be relevant to central government in the event of no overall parliamentary majority. The paper argues that many of the working practices developed in local authorities would be valid in a central government context, though they would not necessarily take the same form. To avoid value judgments, the absence of overall majority, whether in a local authority or in parliament, is referred to simply as 'no-majority'.     

THE LIMITS OF CHANGE: LOCAL GOVERNMENT AND EQUAL OPPORTUNITIES FOR WOMEN

Women make up the majority of local government employees in Great Britain but are not, however, evenly represented throughout the employment structure. Rather, women are overwhelmingly concentrated in low paid, low status and often part-time jobs, and are under-represented as decision makers, either as managers or elected council members. The situation of black and ethnic minority women is one of even greater marginalization. From 1982–7 over 200 local authorities adopted equal opportunity (EO) policies, both for employment practice and service delivery, the aims of which included redressing this inequitable situation for women. The achievements of these EO policies have proved to be very limited. Most have been introduced with few resources and little managerial or political support and without mechanisms for implementation or management accountability. EO reforms have been contained within the existing relationships and structures of local authorities when by definition, successful EO policies will upset the status quo. Nevertheless important lessons have been learned from this first pioneering phase of EO policy development.     

Planning in the passenger transport executives∗

Abstract This article examines the use of Management Buy‐outs (MBOs) as a strategy for the reorganization of service provision by some local authorities in response to compulsory competitive tendering (CCT) under the 1988 Local Government Act. It looks at:

1. How MBOs fit in with the other patterns of change associated with CCT.

   The reasons why particular local authorities have sold service organizations to MBOs.
   The immediate and short term implications of MBOs.
   The longer term prospects for MBO companies in CCT service areas.
   The prospects for further MBOs being established.

     

CENTRAL REGULATION OF ENGLISH LOCAL AUTHORITIES: AN EXAMPLE OF META‐GOVERNANCE?

This paper discusses how the UK government has reconfigured its regulation of English local authorities by moving from direct oversight to using an indirect independent agency as a vehicle of meta‐governance. This theme is discussed through two strands: first, by examining how several factors eroded central government’s capacity to directly regulate councils. The second strand examines the strategies used by the Audit Commission, an independent agency, to assert its authority over councils and how its hegemony is sustained by facilitating and participating in horizontal and vertical networks across government, specialist policy and stakeholders’ communities.     

TAKING STOCK OF THE LOCAL AUTHORITY ASSOCIATIONS

This article examines the achievements of the local authority associations in the period from 1974 to the present. In particular, it considers whether the associations have met the major objectives set by their predecessors. The conclusion indicates that there are a number of factors which have inhibited the achievement of these objectives.
Two of the main inhibiting factors are the close connection between the associations and central government, and their readiness to respond to every move the centre makes. The associations might now consider adopting a weaker connection and a more discriminating response in relation to central government.     

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 POLITICS AND MANAGEMENT OF HUNG AUTHORITIES

Hung local authorities have grown in numbers in recent years. This paper analyses the experience of those authorities. First it reviews the growing body of literature and argues that it has largely been concerned with particular authorities. The authors then proposed a research-based classification of hung authorities, before examining both the nature of political behaviour and changes in management. Finally, the paper identifies factors leading to stability and instability in hung authorities and the characteristics of both situations.     

THE NEW SYSTEM OF LOCAL TAXATION IN SCOTLAND: PRINCIPLES AND PRACTICE

This article examines the new system of Scottish local government finance in theory and practice. It argues that reform is based on an economic theory of local fiscal behaviour, and examines the empirical evidence regarding the application of marginal cost pricing principles through the linking of marginal spending to taxation. The research reveals that the application of such principles in practice will be difficult, as only a few services offer direct benefits to all individuals, and as yet the technical precision needed in assessing needs for grant distribution has not materialized. There is little evidence of any impact of financial reform on local expenditure, as a number of intervening variables and assumptions can skew the accountability process.     

CONSUMERISM, DECENTRALIZATION AND LOCAL DEMOCRACY

Three broad options for public service reform are attracting considerable interest within British local government and the National Health Service – consumerism, decentralization and the extension of local democracy. This article examines each of these options in some detail. While each avenue offers a number of exciting possibilities for change each also conceals a confusion of different hopes and aspirations. It is essential to develop a much sharper analysis of what is on offer and of the underlying driving forces for change. Some proposals are essentially managerial, some are clearly political, others combine managerial and political change. There is a major risk that many authorities will attempt to implement some or all of these new ideas without thinking through the implications.     

THE REGIONAL OFFICES OF THE DOE — POLICEMEN OR MEDIATORS? A STUDY OF LOCAL HOUSING POLICY

The article begins with a review of the existing literature on the regional level of government and the 'regional state', and proceeds to focus on the range of linkages which are found between the centre and local authorities. Seven linkages are identified and after an analysis of the regional level of government it is suggested that professional and technical linkages predominate. The roles of the regional offices of the DOE are then examined within this framework with particular attention being paid to the professional involvement in the housing investment programme negotiations. The article concludes with suggestions concerning the role and influence of the regional officers of the DOE on local authority housing policy.     

DISABLED PEOPLE AND THE IMPLEMENTATION OF LOCAL AUTHORITIES' EQUAL OPPORTUNITIES POLICIES

In debates on equal opportunities, disabled people's issues are often ignored. Disability is typically seen as a medically defined category populated by individuals 'with problems'. This article presents an alternative perspective which re-defines disability and demands that the authenticity of the disabled people's movement be acknowledged. Surveys estimating the numbers of disabled people in the UK are reviewed, as are local authority equal opportunities statements. Two case studies of local authorities, Manchester and Lambeth, are used to show how progress on disabled people's issues has been achieved by account being taken of the demands of the disabled people's movement. The article concludes by looking at the implications of recent legislation and suggests that equal opportunities policies for disabled people are most likely to be implemented when they organize themselves effectively and make coalitions with other disadvantaged groups.     

Competition and Contracting in the Transition from CCT to Best Value: Towards a More Reflexive Regulation?

Following publication of the government’s proposals for a statutory framework of Best Value, and the introduction of regulations increasing the flexibility of CCT pending its abolition, this paper examines the relationship between the compulsory regime and its likely successor. First, the paper suggests that the Best Value frame-work is likely to impose a range of regulatory, monitoring and enforcement constraints similar in effect to the formal requirements that operate under CCT. Continuity with Conservative policy will be reinforced practically through transitional arrangements for the gradual abolition of CCT and the phased introduction of its replacement. Second, the paper argues that contracting is likely to continue to have a significant role under the new regime as the natural adjunct to the voluntary competitive processes that will be the preferred management tools for securing improvements in service performance. Open tendering and public-private sector partnership arrangements, both of which imply contractual governance, are given explicit priority in the consultation document over benchmarking, performance indicators and other comparative public management mechanisms. Third, the paper argues that local authorities are likely to want to retain and develop contracting arrangements that potentially permit a degree of control over service provision that might not be available were more radical service-providing alternatives to be adopted, involving the complete transfer of functions outside the public sector and/or their vesting in independent companies. Finally, the paper assesses the transition from CCT to Best Value from the theoretical perspective of responsive and reflexive regulation. Following a brief account of the reflexive failures of CCT, the paper argues that, although the Best Value framework is characterized by inherently reflexive processes involving self-review, consultation and standard-setting, its relative success is likely to depend ultimately both on the tightness with which legislation is drafted and on the manner of its practical interpretation, implementation and enforcement.     

STRUCTURAL CHANGE AND PUBLIC SERVICE PERFORMANCE: THE IMPACT OF THE REORGANIZATION PROCESS IN ENGLISH LOCAL GOVERNMENT

Organization theory suggests that structural change has disruptive effects on managerial behaviour and organizational outcomes, and that these effects are likely to emerge in the period between the announcement and the commencement of the new structure. We evaluate the validity of this argument by analysing the performance of English county councils in the transition period before the voluntary restructuring of a sub‐set of these organizations. Disruptive effects are tested while controlling for a range of other variables, including the relative prosperity of the local population and the diversity of their service needs. The empirical results indicate that the performance of local authorities facing reorganization deteriorated prior to the onset of the new structures, and support the view that structural change has disruptive effects on organizational outcomes.     

Knowledge Management and Open Innovation in United Kingdom Local Authorities

The article examines the performance of UK local authorities in relation to knowledge management and open innovation. Data were acquired using a mail survey of non-metropolitan local authorities in England and Wales. The results indicate that certain factors influence the effectiveness of the knowledge management process. Authorities engaged in open innovation have developed more effective knowledge management processes. Hence, of instead of implementing a strategy solely based upon cutting services and reducing staffing levels, local authorities seeking to survive in the face of government spending cuts might also consider the benefit from optimizing the effectiveness of their knowledge management processes and participation in open innovation.     

MANAGERIAL STRATEGIES IN LOCAL GOVERNMENT

The organizational arrangements of local authorities are known to vary. Explanations of the variation observed have usually been set within the contingency theory perspective. The present paper utilizes a different approach, examining how far structural variations are a consequence of differences in strategic style. The concept of strategic style is discussed and applied to data from English local authorities. Results indicate that strategic style does influence local authority structural arrangements.     

FROM PROVIDING TO ENABLING: LOCAL AUTHORITIES AND THE MIXED ECONOMY OF SOCIAL CARE

Government policy seeks to introduce competition into the supply of social care through the separation of purchasing and providing responsibilities. A study of 24 local authority social service departments has explored the initial steps taken to prepare for the new enabling role, including the creation of a mixed economy of care. Very few were seeking to create a market in social care. Most argued that the inherent nature of social care rendered the introduction of service specifications and price mechanisms neither approriate nor feasible. Many authorities interpreted the enabling role in ways significantly different from that of the government. The study raises questions about the extent of local discretion in a context where the range of values and interests of implementing agencies may differ from those of the centre.     

Compulsory Competitive Tendering And Local Government Financial Services: An Analysis Of The Views Of Local Government Accountants In The North West Of England

Between 1979 and 1997, successive Conservative governments sought to reduce the scale of public sector activity and to introduce competition in the provision of public sector services. A central feature of this policy was the introduction of compulsory competitive tendering (CCT). CCT was initially confined to blue collar services but, by means of the Local Government Act 1992, it was extended to white collar, professional services, including financial services. However, though potentially extremely significant, the support for and implications of such a policy are issues which have been inadequately researched. Because of this, research has been under-taken into financial services CCT and has included a questionnaire survey of 300 professionally qualified accountants employed in 17 local authorities in the North West of England, drawn from county councils, district councils and metropolitan authorities. The article presents the findings of the survey, with a particular focus on the views of accountants on CCT in general and financial services CCT in particular. In addition, it provides evidence that the CCT process, irrespective of views on CCT and its appropriateness for specific activities, has changed culture and attitudes in the case of local government finance professionals.