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.     

IMPLEMENTING PERFORMANCE APPRAISAL REFORM IN THE UNITED STATES CIVIL SERVICE

The 1978 US Civil Service Reform Act required federal agencies to design and implement new performance appraisal systems. The CSRA intends that these reformed systems produce accurate ratings which may be used as the basis for a wide variety of personnel actions, including decisions regarding pay, promotion, and retention. In this article, we describe and analyze the responses of civilian employees at four Navy research and development laboratories where CSRA appraisal systems have been in operation since 1981. These data were obtained through questionnaires and on-site interviews. Overall, reactions to the CSRA systems were supportive. However, signs of potentially serious long term problems may be appearing in the form of supervisory resistance to the significantly increased workload and potential for conflict associated with the new procedures. Recent changes in Office of Personnel Management policy suggest that this is a problem throughout the federal bureaucracy. The administrative-organizational'costs' of CSRA appraisals and radically changed political priorities are likely to present formidable barriers to the complete implementation of the CSRA.     

IMPLEMENTING EQUAL OPPORTUNITIES IN THE 1980s: AN OVERVIEW

Although it is over ten years since major legislation was enacted, equal opportunities remains a controversial issue in Britain. This has affected its implementation in a variety of ways. The article reviews arguments over the meaning of equal opportunities policy, its meaning in the British case and the way it is affected by the British conception of rights. Consideration is given to the experience of implementation by the relevant administrative agencies and local authorities. Particular attention is paid to the area of training. A concluding discussion suggests that market forces may provide the impetus for new developments in the implementation of British equality policy.     

THE EUROPEANIZATION OF HEALTH CARE GOVERNANCE: IMPLEMENTING THE MARKET IMPERATIVES OF EUROPE

The paper examines the Europeanization process and the impact of the European Union (EU) on national healthcare policies, using the example of Denmark. The analysis reveals that although health policy formally falls within the competence of member states, the impact of the EU is becoming increasingly conspicuous and has contributed to a gradual restructuring of healthcare boundaries as well as of some of its organizing principles. Furthermore, the process and impact have a de‐structuring effect on the more traditional governance tools used in relation to healthcare. The paper concludes that the EU has a significant impact and that we may be witnessing the formation of a new institutional legacy that represents the initiation of a Europeanized healthcare model: a model emerging around a new set of stakeholders, principles and structures, which includes the market, principles of free movement, patient choice and patient rights institutionalized and safeguarded by the EU.     

POLICY TRANSFER IN PRACTICE: IMPLEMENTING SUPPLIER DIVERSITY IN THE UK

This article draws on the policy transfer literature to examine a UK‐based initiative to promote supplier diversity and provides insights into three areas neglected in current research, namely: the dynamics of non‐governmental policy transfer; the factors that mediate policy transfer in different jurisdictions; and the integration of research and practice in small business related policy transfer. To this end, an innovative action research approach is deployed with the dual purpose of effecting practical change and advancing knowledge. This comprises two phases: first, a realist analysis of the US National Minority Supplier Development Council (NMSDC), an exemplar intermediary; and second, the implementation and concurrent realist evaluation of a supplier diversity initiative modelled on NMSDC, referred to as ‘Supplier Development East Midlands’ (SDEM). The findings provide lessons for academics and practitioners dealing with small and medium‐sized enterprise (SME) policy transfer in general and supplier diversity intermediaries in particular.     

IMPLEMENTING EU NATURA 2000 AT THE PROJECT LEVEL: LESSONS FROM THE VELUWE BORDER LAKES IN THE NETHERLANDS

The implementation of the European Union Bird and Habitat Directives in the field of water infrastructure has caused severe project disruptions in the past. The prevalence of negative experience has triggered a new approach, which aims to integrate site‐specific characteristics of ecosystem and project objectives during the development of the initial project design. This is termed integrated nature design. In this paper we advance the hypothesis that applying integrated nature design in Natura 2000 areas can increase the chances of a project being approved in case appeal is made to the courts. To test our hypothesis we have carried out a quasi‐experimental comparison of two coastal zone development projects in the Netherlands. Our analysis demonstrates that a coastal development project in a Natura 2000 area has a greater chance of success if its design integrates nature, provided that the project administration and scientific findings are favourable.     

IMPLEMENTING WELFARE REFORM IN MICHIGAN: THE ROLE OF STREET-LEVEL BUREAUCRATS[1]

ABSTRACT

This study examines the implementation of welfare reform policies enacted by the state of Michigan. In particular, it focuses on how welfare policy is altered as it devolves from state policy makers to street-level bureaucrats in three local welfare agencies in Michigan. The analysis reveals that street-level bureaucrats in local welfare offices are in a position to interpret broadly stated goals handed down from officials, and, in some cases, to manage and greatly influence the delivery of services when messages are mixed. The study also suggests that the actual policies or services delivered by front-line workers in welfare offices do not completely correspond with the policy directives issued by state officials.     

THE NEXT STEPS AGENCIES, POLITICAL SALIENCE AND THE ARM'S-LENGTH PRINCIPLE: BARBARA CASTLE AT THE MINISTRY OF TRANSPORT 1965-68

The Next Steps agencies preserve a long tradition as the latest manifestation of the arm's-length principle of ministerial control. During the major part of this century, the now almost defunct public corporations offered one of the best examples of the arm's-length principle at work, and the recorded experiences of participants can provide valuable lessons for the Next Steps agencies. This article employs the diaries of Barbara Castle during her period as Transport Minister from 1965-68 in order to examine how she apportioned her time. From the evidence, a model is constructed which suggests that political salience is of greater importance than official structures in determining ministerial behaviour. Arising from the case study and the model, the final section of the article attempts to identify Next Steps agencies which have an inherently high potential for political salience, and concludes that, in this category, direct ministerial control would be preferable to the arm's-length principle.     

IMPLEMENTING CHANGE IN HEALTH SYSTEMS: MARKET REFORMS IN HEALTH SYSTEMS IN THE UNITED KINGDOM,SWEDEN AND THE NETHERLANDS

IMPLEMENTING CHANGE IN HEALTH SYSTEMS: MARKET REFORMS IN HEALTH SYSTEMS IN THE UNITED KINGDOM, SWEDEN AND THE NETHERLANDS
Michael I. Harrison
Sage, 2004, 256 pp., £21.99 (pb) ISBN: 0761961763     

DEVELOPING AND UNDERSTANDING CULTURAL CHANGE IN HM CUSTOMS AND EXCISE: THERE IS MORE TO DANCING THAN KNOWING THE NEXT STEPS

Increasingly, what was formerly known as public administration is turning itself into management, while management itself is fast becoming synonymous with the management of change. These two directions meet in government calls to change the culture of the civil service, and are to be found most clearly in the Financial Management Initiative (1982), and its successor, the Next Steps (1988). While each stresses a different aspect, the core policy idea which runs through them is one of improving performance by delegating power and responsibility down the hierarchy closer to the point of delivery. In this way the bureaucratic giants which comprise the various central government departments are transformed into more adroit organizations, to the extent that it becomes appropriate to talk of giants learning to dance (Kanter 1989). This article, through a discussion of 'experiments in change' conducted in one of the largest central government giants, HM Customs and Excise, argues that teaching giants to learn to dance is easier said than done. The main focus of the article is on what giants may need to learn in order that they can become more attuned to change and it concludes with the proposition that change in central government cannot be understood or be properly managed without an appreciation of the changing context of change itself.     

IMPLEMENTING PERFORMANCE‐BASED FUNDING FOR HEALTH RESEARCH: WHEN GOVERNANCE AND PROCEDURAL FAIRNESS MATTER

The article examines the implementation by the Italian Ministry of Health of performance‐based funding to allocate resources for research to IRCCS (Istituti di Ricovero e Cura a Carattere Scientifico) hospitals. The analysis provides evidence that ten years from its introduction the performance‐based funding system has persisted, but it has been implemented rather differently from what had been imagined by its proponents. By drawing on the theoretical frameworks of policy implementation, agency, and relational contracting, the study establishes that the overall design of the system has contributed to this final outcome only to a limited extent. Rather, the lack of procedural fairness, as well as of political leadership in linking the system to national research priorities, has undermined the basis for trust between hospitals and the Ministry of Health. The article discusses how, in this, the governance of performance‐based funding and its strong ownership by the ministerial bureaucracy has been determinant.     

THE QUASI-MARKET,THE ENTREPRENEUR AND THE EFFECTIVENESS OF THE NHS BUSINESS MANAGER

The recent changes in the UK National Health Service were heralded by the publication of the Griffiths report in 1983 which highlighted the need for a business-like’approach to management. The policy makers’generic strategy of the late 1980s and early 1990s centred around the concept of‘quasi-markets’. These were artificial internal markets encompassing the purchasers and providers of public services. Little research has been undertaken into this new phenomenon of the‘quasi-market’but entrepreneurship economic theory would suggest that for markets to be efficient would require a supply of alert and aware entrepreneurs. Within the restructured NHS, the mantle for entrepreneurial management seems to have been placed firmly on the shoulders of the newly created‘business managers’. A 1993 survey amongst NHS business managers in first and second wave trust hospitals in the Trent Regional Health Authority indicated that whilst business managers were knowledgable of what entrepreneurial activity is, they currently feel constrained in their new roles for a variety of reasons. The authors suggest that rational economic analysis is insufficient to explain this lack of innovatory endeavour. Instead policy makers’attention should be devoted to liberating health managers from their current constraints to encourage their entrepreneurial development.     

THE ROLE OF EXTERNAL INSPECTION IN THE PUBLIC SERVICES: THE CASE OF THE UK TRAINING MARKET

We consider two interpretations of the role of external inspection in the public services in the UK in the context of publicly funded, work‐based training programmes for young people. The first is that inspection provides substantive information to buyers concerning training quality, thereby improving efficiency in the ‘training market'. The second is that it provides procedurally oriented reassurance concerning service quality to government and the public, irrespective of substantive quality. Evidence is drawn from the inspection procedures and reports of the Adult Learning Inspectorate between 2001 and 2005. The inspectors rated training providers on various attributes, some clearly procedural, others potentially substantive. We find that while inspectors took both procedural and substantive dimensions of training into account in judging the quality of a provider's services, they attached considerably more weight to procedural than to substantive attributes. In particular, they undervalued the trainee completion rate, despite its potential association with the substantive quality of training and the priority the government attaches to raising it. These results are interpreted as evidence of limited validity in inspection findings, which do little to resolve information asymmetries in the UK training market.     

THE MANAGEMENT OF CHANGE IN WHITEHALL: THE EXPERIENCE OF THE FMI

The Conservative government announced the Financial Management Initiative in 1982. This article is based on research into the genesis, development and impact of the FMI. The findings suggest that the FMI has contributed significantly to the institutionalization of resource management in general and cost awareness in particular. Implementation has been influenced, however, by the differentiation of departmental tasks and contexts, the inevitable tension between management and politics, and the difficulty of meeting the conditions for the successful engineering of cultural change.     

THE ROLE OF POLITICIANS AND ADMINISTRATORS IN DEPARTMENTAL REORGANIZATION: THE CASE OF THE DEPARTMENT OF THE ENVIRONMENT

This article examines the history of the Department of the Environment from its creation in 1970 to the formation of the Department of Transport in 1976. Its main approach is an analysis of the roles of the Permanent Secretary and the Secretary of State in the development of the organization. The strong organizational relationship between these senior members of the department is an important factor in structural change both at the time of the initial reforms and throughout this period.
The influence of different personalities and their approaches to policy and management is considered as a determining factor in the evolution of the department. Additionally, the attempts at reorganization and reform are to be seen as largely developing within a traditional Whitehall framework, based on this relationship, which restricted its effectiveness.     

THE FINANCIAL MANAGEMENT INITIATIVE IN THE FCO

This article focuses on the Diplomatic Wing of the Foreign and Commonwealth office (FCO) in this country and diplomatic missions overseas. The Overseas Development Administration, though brigaded with the Diplomatic Wing under the Secretary of State for Foreign and Commonwealth Affairs, is substantially a separate organization staffed by Home Civil Servants and with its own Accounting Officer. Though we work closely together, the organizations are distinct.