Public Services, Quangos And Women: A Concern For Local Government

The past eighteen years have witnessed a shift in the locus of much public sector service provision from elected and heavily regulated local government to the more opaque, appointed sector of quasi-autonomous non-governmental organizations (QUANGOs). This shift has been the basis of much debate about the nature of democratic accountability and whether the users of public services are empowered by such decentralization. What has yet to be considered is how the displacement of local authority representation and service delivery may affect different groups of service users. This article is concerned with such issues in relation to women as consumers of public services who, from genuine political as well as expedient motivations, have been relatively well represented by local authorities. The concern here is that as decision making moves away from public view, the need to be seen to accommodate difference is lost, and representative diversity will suffer.     

Planning,Budgeting, and Health Care Performance in Ukraine

Abstract

The Government of Ukraine has not pursued health care reforms now commonplace in the rest of Europe and Central/Eastern Europe that rely less upon centralized, state delivery of services and more on decentralized operational responsibilities and competition for services that increase patient choice. The Ukrainian health sector suffers from personnel overspecialization and facility overcapacity, resulting in high-cost, low productivity services. Budget funds are unavailable for operations and maintenance resulting in poor quality services. The state provides health care as a constitutionally-protected monopoly, relying on the traditional command and control model which ignores cost/quality competition options and responsibilities to patients. Overall, the system which produces these results is over-centralized, requiring achievement of physical service norms without providing sufficient funds. The centralized system does not monitor or evaluate services beyond narrow financial accountability and control requirements. The health care system is paradoxically over-centralized but unable to regulate or control local health care official decisions to ensure compliance with national standards. Needed are reforms in the health care policy and operational areas to produce the supply of services needed for national economic recovery. In the short-term, the budgetary framework can be improved as an operational/management guide through development of comparative information on results. Most of this information can be based on the economic classification consistent with the chart of accounts. Funding stability can be increased to improve expenditure control by implementing a new fiscal transfer formula that provides discretion (i.e., block grants) and performance criteria (i.e., outcome measures). In the medium-term, building on the technical foundation of physical norms and statistical reporting, the health care budgeting and financial management system should shift emphasis to: program planning, policy and management analysis, and public communications. The results of these reforms should lead to decentralized health care operations, service analysis, and delivery responsibilities. At the same time, the reforms should lead to proper centralization of responsibilities for strategic policy decisions, safety regulation, national standards, and program evaluation.     

Innovating Public Service Delivery in Transitional Countries: The Case of One Stop Shops in Kazakhstan

This article analyses the implementation of managerial ideas in Kazakhstan using the case of a combined public service delivery called “One Stop Shops”. Several public services are provided in a single building rather than different government offices in a business-like style of service delivery and in a modern physical environment. The service integration policy is an attempt of Kazakhstani government to improve the quality of public services and reduce corruption. Some positive progress in improving the accessibility of public services has been noted. However, as this article argues, the country-specific model of “alternative-access” service delivery was not able to implement in-depth changes in the work of the public sector and improve service quality. Implementation of the managerial ideas has been limited and constrained by the institutional framework and culture prevailing in the Kazakhstani bureaucracy. The main conclusion is that the governments of transitional countries need to critically analyze the pros and cons of the new policies and reflect on their cultures before making further steps to adopt Western managerial initiatives.     

PRAGMATIC MUNICIPALISM: LOCAL GOVERNMENT SERVICE DELIVERY AFTER THE GREAT RECESSION

Since the Great Recession, some have argued that local governments have become ‘austerity machines’ that cut and privatize services and undermine unions. We conducted a national survey of US municipalities in 2012 to examine how service provision level and delivery methods are related to local stress and capacity, controlling for community need and place characteristics. We find that local governments are balancing the pressures of stress with community needs. They use alternative revenue sources and service delivery methods (privatization and cooperation) to maintain services. Unionization is not a barrier to innovation. Further, we find that ethnically diverse suburbs are providing more services than other suburbs, thus acting more like metro core cities. We find that the Great Recession has not dramatically shifted local government behaviour to a ‘new normal’ of fiscal austerity. Instead, we find municipalities practising ‘pragmatic municipalism’ to maintain their public role.     

Improving Public Service Delivery: The Crossroads Between NPM and Traditional Bureaucracy

This article analyses a New Public Management (NPM) style of reform recently introduced in Portuguese public administration. The reform introduces new organizations to a method of delivering public services called 'Citizen Shops' (CS) ( Lojas dos Cidadãos ). Several public services are concentrated in a single building whose management follows the practices of the private sector concerning service delivery and opening times, rather like a 'shopping centre'. 'Citizen Shops' is a kind of agencification and is an attempt to avoid the constraints of civil service red tape and bureaucratic resistance to change. The author argues that the extent to which new ideas were imported from NPM was limited and constrained by the institutional framework and the culture prevailing in Portuguese bureaucracy. Citizen Shops reproduced the hierarchical and centralized nature of service delivery and followed the traditional patterns of control. The prevailing structure is an important constraint on NPM development.     

COMPETITION OR MONOPOLY? COMPARING PRIVATIZATION OF LOCAL PUBLIC SERVICES IN THE US AND SPAIN

Differences in national traditions of public intervention, institutional arrangements and public service markets make local public services an area of great diversity. In this paper we undertake a comparative study of how local governments arrange for delivery of water and waste services in the US and Spain. We find levels of privatization are higher in Spain than in the US. We review organizational reform in the two contexts and compare service delivery data using national surveys from each country. We find lower and less stable privatization in the US stems in part from adherence to public choice emphasis on the benefits of market competition over public monopoly. By contrast, Spanish municipalities reflect an industrial organization approach, and create hybrid public/private firms which benefit from both market engagement and economies of scale available under monopoly production. We conclude that managing monopoly may be more important than competition in local service delivery.     

Tackling society's “detritus”: Stakeholder partnerships and Urban service delivery in India

In view of the emerging debate on a coordinated‐management perspective for resolving development improvidence, there is now a broadening of the scope of decentralization, emphasising not only vertical restructuring of powers and resources but also analogous horizontal restructuring at the local level to include collaborators outside the government arena. Grounded on this perspective, the present paper examines the process of stakeholder partnerships in urban service delivery, especially on urban environment maintenance service through refuse collection and disposal. The paper is reflective in nature, drawing on a case study of solid waste management processes in Bangalore, India. It examines the characteristic of stakeholder partnership in the delivery of public services, draws insights into the enabling environment and thereupon attempts to identify future interventions to strengthen the delivery of public municipal services. The paper argues that much more needs to be understood if institutional pluralism in local government is to become an effective development strategy.     

Management in New Public Service Systems: Reframing the Position of Managers and Their Training and Development

Management training and development (T&D) plays an important part in enabling managers to deal with complexity and change associated with new public service systems. Using a service-dominant logic approach, this paper explores the relevance of T&D in preparing managers for changing roles, responsibilities and relationships that integrated service systems demand. Exploring the views of service managers working in Community Health Partnerships, the study establishes that present management T&D does not support the delivery of integrated services which require different abilities and new ways of working. New public service systems demand new processes of learning where re-framing the position of managers and their T&D becomes increasingly necessary.     

Public–private partnerships (PPPs) in local services: risk-sharing and private delivery of water services in Spain

Local governments are increasingly utilising the public–private partnership (PPP) model as a means of organising service delivery in the public–private domain. This article examines the experiences with construction and operation of 131 PPP wastewater treatment plants in the region of Aragon, Spain. The study highlights how an inadequate management of construction risk and unsuitable transfer of demand and revenue risk resulted in significant time delays in execution of the PPP projects. The research also shows how the involvement of public bodies at local, regional and national level further added to the complexity of implementing the projects. The findings contribute to the literature on local service delivery and provide insights regarding risk transfer in long-term PPP contracts for the delivery of local services in general and water services in particular.     

The Use of Discretion in a Rule-Bound Service: Housing Benefit Administration and the Introduction of Discretionary Housing Payments in Great Britain

This paper is concerned with how administrators in the Housing Benefit (HB) service in Great Britain have reacted to the discretionary powers given to local authorities as a result of the introduction of Discretionary Housing Payments (DHPs). DHPs can be awarded to HB claimants deemed to require additional assistance with their housing costs. The paper first argues that the HB service can be categorized as 'rule-bound' before outlining the DHP regime and the nature of the discretion that it affords HB administrators. A brief review of the literature on discretionary decision making in public service organizations suggests four propositions in respect of DHP decision making. The paper then seeks to test these propositions. It concludes that in general HB administrators do not appear to have experienced the difficulties associated with discretionary decision making in rule-bound services that might have been expected on the basis of previous work in this field.     

Politicians,organisations and the public ‐ the provision of gypsy sites

Under the Best Value regime, the government requires local authorities to involve the public in determining the provision of services. Indeed, the Best Value legislation provides a legal basis for consulting citizens and the local community in relation to better management of local government functions. The guidance on Best Value also encourages local authorities to place performance management within a community strategy framework. These combined actions will, it is hoped, result in more innovative, effective and efficient provision. Arguably, however, the success of increased participation will be influenced by how and why the public are involved. This study draws on case study research to ask whether involving the public does result in innovative changes and to what extent those involved are empowered through the process, concluding that success for both the authority and service users is influenced by factors such as cost structures and whether the original intent includes careful consideration of how those involved might benefit from the process.     

STRUGGLING WITH AMBIGUITY: PUBLIC MANAGERS AS USERS OF NPM‐ORIENTED MANAGEMENT INSTRUMENTS

Improving public sector performance involves both ‘knowing’ and ‘doing’ problems. With the emphasis on the ‘doing’ problem, this study examines public managers as users of management instruments (MI) in attempts to improve the performance of public services. The article explores uses of three MIs in Finnish local government by using the conceptual framework of ambiguity. The article demonstrates why and how the use of MIs does not always simplify the public management exercise. It may become even more ambiguous. It is important to comprehensively understand the ways in which uses and users of MIs intervene in the process of public service delivery. It is argued that understanding MI uses in public administration necessitates a more profound theoretical approach acknowledging the ways in which ‘rational intentions' for performance improvements turn into situated, boundedly rational, managerial practice. In the context of productivity programmes, such understanding is essential to researchers and practitioners of public administration.     

Privatizing Urban Services Through Homeowners Associations: The Potential and Practice in Phoenix

Homeowners associations (HOAs) are private nonprofit corporations that regulate, “tax,” and provide urban services to growing numbers of U.S. residents. As such, HOAs may affect cities' public service delivery. Interviews with department heads in Phoenix, Arizona reveal how enclaves of private services influence the city's planning and provision of public services. The findings suggest that HOAs do not substitute private for public services in Phoenix. Instead, qualitative differences in the services themselves (particularly concerning their purpose and scale) and in the legal powers of their providers create a more nuanced pattern of public-private service delivery.     

Municipal Service Delivery: The Role of Transaction Costs in the Choice between Alternative Governance Mechanisms

Service provision by local governments can be delivered using in-house bureaucracies, private firms, and partnerships with other governments or the not-for-profit sector. This production decision has been a major focus of discussion among scholars, practitioners and political agents for the last quarter of a century. The transaction costs framework is an important tool to analyse decisions regarding the production of local services. In this paper, the authors employ this framework to analyse service delivery in Portugal and find that service characteristics and the local political environment play a key role in local officials' choice among the three governance mechanisms to deliver public services.     

Management information bulletins and social services managers

Partnership and participation have co-evolved as key instruments of New Labour's agenda for the ‘modernisation’ and ‘democratic renewal‘ of British local government. It is often assumed that partnerships are more inclusive than bureaucratic or market-based approaches to policy-making and service delivery. This article argues that partnership working does not in itself deliver enhanced public participation; indeed, it may be particularly difficult to secure citizen involvement in a partnership context. The article explores the relationship between partnership and participation in a wide range of local initiatives, exemplifying difficulties as well as synergies. The article concludes that public participation needs to be designed-in to local partnerships, not assumed-in. A series of principles for the design of more participative local partnerships is proposed.     

INTERROGATING INSTITUTIONAL CHANGE: ACTORS' ATTITUDES TO COMPETITION AND COOPERATION IN COMMISSIONING HEALTH SERVICES IN ENGLAND

Since the beginning of the 1990s the public healthcare system in England has been subject to reforms. This has resulted in a structurally hybrid system of public service with elements of the market. Utilizing a theory of new institutionalism, this article explores National Health Service (NHS) managers' views on competition and cooperation as mechanisms for commissioning health services. We interrogate the extent of institutional change in the NHS by examining managers' understanding of the formal rules, normative positions and frameworks for action under the regime of the Health and Social Care Act 2012. Interviews with managers showed an overall preference for cooperative approaches, but also evidence of marketization in the normative outlook and actions. This suggests that hybridity in the NHS has already spread from structure and rules to other institutional pillars. The study showed that managers were adept at navigating the complex policy environment despite its inherent contradictions.     

Customization in Civil Service Training: Implications for Outsourcing Human Resources Management

In the public sector, central training institutes once played an irreplaceable role in formulating training policies and providing training programs to government employees. The introduction of new public management (NPM) has stimulated a reform agenda in human resources (HR) management, resulting in a shift from centralized training to decentralized or outsourced training; to be precise, making civil service training more demand-driven and lessening the role of central training institutes. Local-level governments and agencies have acquired more autonomy in deciding whether to provide training in-house, or to purchase relevant services from private providers. In addition, dramatic institutional, economic, and operational changes in the public sector in the twenty-first century have brought about competition among governments worldwide in terms of innovative and creative ideas, prompting them to equip their employees with the relevant skills for the governments to remain competitive. This study explores how civil service training in Hong Kong has been decentralized and customized from the viewpoint of civil servants being trainees, and assesses the role of the Civil Service Training and Development Institute as a centralized training institute for Hong Kong civil servants within the modern, decentralized, and consumerized HR management regime.     

Marketization reforms and co-production: Does ownership of service delivery structures and customer language matter?

In public services that are tax funded, public goods are sometimes marketized by being delivered using private companies instead of public organizations. In addition, marketization reforms can entail service users being described as customers for the service rather than as citizens. We assess the effects of these aspects of marketization reforms on users' willingness to co-produce public services. First, service delivery using private companies risks reducing users' willingness to co-produce because firms cannot commit ex ante to not appropriate donated labour for private gain. Second, using customer-oriented language risks reductions by priming individualistic market norms that lower prosocial motivation compared to citizen-oriented language priming citizenship duty. Using three survey experiments in the United States, we find that delivery structures are not neutral. Private firms delivering local public services reduce users' willingness to co-produce, although similar effects are not evident from primimg customer rather than citizenship thinking.     

Absence of Vertical Linkages and the Quest for Decentralized Service Delivery in Pakistan: An Innovation under Constraints

Local Government Ordinance, 2001 aimed to create a service-orientated local government by devolving many public services from the provincial to local levels. However, in many cases, local governments either did not have the capacity to manage them or the services extended across different geographic jurisdictions. The new system also restructured the three sub-national levels but without any vertical hierarchical linkages between them, and asked them to coordinate public service provision between them. This article suggests different remedies, including developing vertical administrative linkages and the reconstitution of Zila Mushawarat Committee to undertake coordination functions at intra-district level.     

‘You're Just Treating Us as Informants!’ Roles,Responsibilities and Relationships in the Production of Children's Services Directories

Local authorities in England are required to make directories of services available to practitioners working with children and young people. This is against a background of continuing reforms intended to ensure that services are joined-up around the needs and choices of children, young people and their families. There are high expectations that more of these services will be delivered by organisations from theVoluntary and Community Sector (VCS), especially services for groups or communities that public sector agencies find hard to engage. This article reports and comments upon a regional study focusing on the production of children's service directories involving service providers and commissioners, as well as the producers of directories, in a series of facilitated workshop activities. The study highlights tensions between local authorities and service providers around how information about services is controlled, edited and accessed. We argue that current approaches to the provision ofdirectories are unlikely to have the transformational effects predicted by policy makers. This is partly because local authorities' traditional position (supported by the prevailing technologies) has meant that they have tended to monopolise the roles and responsibilities which in turn maintains their control of directory content. They do so in the face of increasing dissent from new and established providers. Moreover, current models of service directories fail to meet the emerging information needs of a range ofstakeholders including service providers, service commissioners and service users. Inconclusion we propose some questions to improve visibility and governance in the creation and maintenance of service directories.