'Management by Contract': A Study of Programmatic and Technological Aspects

The practice of 'Management by Contract' can — as with any practice — be characterized by programmatic and technological dimensions. These dimensions contain concepts and ideas at the programmatic level, which shape the mission of the practice (concrete tasks and routines) at the technological level. Thus, the former attach the practice to the broader conceptual dimension. In this paper both of these dimensions will be analysed. The aim is to study how quality issues have been managed by contract. The first part presents some of the conceptual arguments of 'Management by Contract'. The arguments of a structure generally used (the Purchaser/Provider split) and a method often used (competitive tendering) will be discussed. The second part presents some technological effects through empirical findings. The paper concludes with an analysis of the interaction or non-interaction between these two dimensions.     

EXECUTIVE EDUCATION FOR STATE AND LOCAL GOVERNMENT: A SURVEY

ABSTRACT

Executive education is a growth industry in the United States. Executive education programs and, more particularly, the variety of teaching techniques they use, promise to be key issues in the field of public administration in as much as they may be precursors of techniques and technology that will be used in more traditional teaching venues. This study reports the results of a survey of executive education programs conducted in 1998 under the auspices of the South Carolina Executive Institute. The survey covered four areas – curriculum, participants, faculty, and program administration. We conclude that the immediate future of executive education likely will be marked by a continuing emphasis on customization, experimental learning, and rigorous evaluation of the results. Two areas in which there are likely to be more significant departures from existing practices in public sector executive education are program alliances and the use of new communications and information technology.     

America's Trajectory in the Long War1: Redirecting Our Efforts Toward Strategic Effects Versus Simply Tactical Gains

After 9/11 the United States has a significant disconnect between its strategic and tactical efforts against violent global jihadists. Some American leaders and commanders are confusing effectiveness and success, improperly associating tactical disruption of enemy elements with strategic effect. While the country has won some important tactical victories, it is not clear that they are amounting to a strategic impact, or that the gains will last. The situation is complex, with various dynamics influencing America's prosecution of the Long War and its ability to be successful in the long term. This article looks at what those factors are and provides policy makers with tangible recommendations that, if implemented, will place America's counterterrorism efforts on a more strategic trajectory and hold greater promise of lasting impact.     

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.     

Politicians and Interactive Decision Making: Institutional Spoilsports or Playmakers

In recent years interactive decision making has become quite popular in The Netherlands, especially at the level of local government. It involves new forms of participation of citizens, consumers of public services and interest groups in the process of policy formation. Workshops, panels, internet discussions and a lot of other techniques are used to arrive at innovative and supported solutions for existing problems. The ambitions are high: these new forms of participation should result in better government both in the sense of providing better policies, but also in bridging the democratic gap between local government and citizens. However, these new forms of participation in local government are not without problems. Recent experiences suggest that one of the major problems is the challenge interactive decision making constitutes for the existing practice of representative politics. On the basis of two cases — the decision-making process concerning the expansion of the Rotterdam Harbour and the discussion about a new administrative structure for the Rotterdam region — this article illustrates that one of the barriers that stands in the way of the success of such processes is the ambiguous attitude of elected politicians. Although politicians often initiate interactive decision-making processes, they do not actively support these processes when they are in progress. The outcomes of interactive decision-making progress are often not used in the formal political procedures that follow. Because elected politicians fear that these new forms of participation threaten their political primacy, they find it hard to play a constructive role in these processes.     

Civilizations Out of Sync

Efforts by the Bush Administration to launch an international public relations campaign — under the guidance of the marketing guru behind the Uncle ben' rice advertisements — is a bit naive. "If the Muslim world only understood our good intentions, all would be ok," seems to be the idea. And Hollywood has been enlisted to tell the world, "This is not a war against Muslims."     

The Civil Service Under Stress: The Fall in Civil Service Power and Authority

The failures of governments of both parties in the 1970s had prepared for radical changes in the nature of government under Margaret Thatcher. Among them were that ministers resumed greater power over their civil servants. While various aspects of the relationship between ministers and officials changed and despite the introduction of special advisers, close partnership — the Haldane relationship — was largely retained between them until the end of the 1980s. In the 1990s ministers began to operate less closely with the civil service, largely because they found they had less time for departmental work under the Major and the first Blair administrations. Many of the skills for which civil servants had been trained became less in demand because of the ending of the Cabinet style of government, the reduced importance of ministers appearing before parliament and the greater involvement of spin doctors and media handlers in preparing public documents. However, new skills were required: more rapid accessing of information and more skill in implementation and responsibility for it. The Wilson reforms of 1999 were in large part aimed to remedy these shortcomings. There remains a question whether enough of the Haldane relationship survives for government not to be driven towards greater definition of the rules in which civil servants operate.     

Microdisarmament and Compliance Costs: An Analysis of Disarmament,Demobilization, and Reintegration Programs

Focusing on disarmament, demobilization, and reintegration programs, this article considers why some armed groups disarm and demobilize, while others refuse to do so. Previous research focused on intergroup rivalries and identified enforcement as a critical barrier. This study considers the effect of (1) war benefits and (2) intragroup dynamics and argues that distribution problems obstruct conflict resolution. Using a simple game-theoretic model, the article demonstrates that optimal programs (1) consider that combatants' cost of supporting peace varies and (2) require a mix of positive and negative incentives to motivate all ex-combatants to participate and comply with program requirements.     

The UN at war: examining the consequences of peace-enforcement mandates for the UN peacekeeping operations in the CAR,the DRC and Mali

The UN peacekeeping operations in the Central African Republic (CAR), Democratic Republic of Congo (DRC) and Mali were in 2013 given peace enforcement mandates, ordering them to use all necessary measures to ‘neutralise’ and ‘disarm’ identified groups in the eastern DRC and to ‘stabilise’ CAR and northern Mali. It is not new that UN missions have mandates authorising the use of force, but these have normally not specified enemies and have been of short duration. This article investigates these missions to better understand the short- and long-term consequences, in terms of the willingness of traditional as well as Western troop contributors to provide troops, and of the perception of the missions by host states, neighbouring states, rebel groups, and humanitarian and human rights actors. The paper explores normative, security and legitimacy implications of the expanded will of the UN to use force in peacekeeping operations. It argues that the urge to equip UN peacekeeping operations with enforcement mandates that target particular groups has significant long-term implications for the UN and its role as an impartial arbitrator in post-conflict countries.     

USING BUREAUCRACY SPARINGLY

'Using bureaucracy sparingly' (UBS) is a well-known and traditional canon of good public administration — but one that has a number of meanings which are not wholly compatible with one another. Looking at the interface between government administration and the outside public (rather than at the internal operations of government bureaux), this essay identifies three rather different senses of UBS, all of which are in common currency. The implications of two of these are then explored, in terms of the kinds of preferences they imply for the use of government's administrative instruments. Finally, there is a brief discussion of what the different senses of UBS have in common and of the extent to which they have divergent implications, posing dilemmas for those who might wish to 'use bureaucracy sparingly'.     

Analysis of Changes in External Accountability and Accounting in Privatized Industries: A Case Study of British Gas

This study investigates the consequences of regulation for organizational and accounting change in privatized industries by means of a case study of the gas industry, with particular emphasis on issues of accountability and the role of accounting information. The paper extends Stewart and Ranson's (1988) discussion of the distinctive conditions which apply to public and private sector organizations by highlighting an important interim phase in relation to privatized industries, where public service obligations coexist to varying degrees with private sector objectives. The extension of their framework of public and private sector models to include a new 'commercial' model provides the basis for an analytical framework encompassing the three cultures — that is, public service, commercial and competition — which is used to understand organizational change in the gas industry.     

Regulation in an Episodic Policy-Making Environment: The Water Industry in England and Wales

This article describes and analyses the evolving regulatory game in the post-privatized water industry. It highlights a regulatory environment that is more complex than that which existed under public ownership, and an industry which is subject to heavier regulation in the private sector than it was in the public sector. There has been erosion of the strict public/private divide following privatization. The article highlights an episodic and seemingly incongruous policy-making environment that defies consistent characterization: sometimes private consensus is the main feature and sometimes it is public conflict. It also illustrates that while there are two broad-based constituencies of interest active in the water sector — cost and environmental — the composition of these coalitions mutates depending on the issue being considered. Indeed, there are occasions when core constituency participants 'defect' and join the 'opposing side'.     

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.     

Globalization and Prison Privatization: Why Are Most of the World's For-Profit Adult Prisons to Be Found in the American South?

For a generation, students of comparative public policy and international politics have argued that global market discipline and the increasing mobility of international "best practices" have given rise to policy convergence at the global level. This paper uses the American case to investigate some of the forces thought to have given rise to the spread of private prisons. It finds that while there are prisons in a number of countries, the evidence of convergence is thin and seems to suggest that the core of the prison privatization is in the American South. It then examines several theories—the political economy of the prison boom and overcrowding, globalization theory, the politics of the new right and the idea of a "prison-industrial complex"—that have been used to explain prison privatization and the extent to which they are consistent with the empirical pattern. Each takes us some way to understanding that pattern, but none can provide a clear theoretical mapping.     

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.     

The "End Of History" 20 Years Later

Twenty years after the fall of the Berlin Wall and the triumphant celebrations of the West, a new chapter of history has opened featuring the rising powers of Asia, led by China. Though embracing free markets, China has looked to its Confucian traditions instead of liberal democracy as the best route to good governance. Will China manage to achieve high growth and a harmonious society through a strong state and long‐range planning that puts messy Western democracy and its short‐term mindset to shame? Or, in the end, will the weak rule of law and absence of political accountability in a one‐party state undermine its promise? Francis Fukuyama and Kishore Mahbubani, the Singaporean thinker who has become the apostle of non‐Western modernity, debate these issues. In this section we also republish a collective memoir by George H.W. Bush, Mikhail Gorbachev, Margaret Thatcher and François Mitterrand, recalling their fears and hopes two decades ago as they brought the Cold War to an end.     

Obama in Asia: West Looks East After the "End of History"

Twenty years after the fall of the Berlin Wall and the triumphant celebrations of the West, a new chapter of history has opened featuring the rising powers of Asia, led by China. Though embracing free markets, China has looked to its Confucian traditions instead of liberal democracy as the best route to good governance. Will China manage to achieve high growth and a harmonious society through a strong state and long‐range planning that puts messy Western democracy and its short‐term mindset to shame? Or, in the end, will the weak rule of law and absence of political accountability in a one‐party state undermine its promise? Francis Fukuyama and Kishore Mahbubani, the Singaporean thinker who has become the apostle of non‐Western modernity, debate these issues. In this section we also republish a collective memoir by George H.W. Bush, Mikhail Gorbachev, Margaret Thatcher and François Mitterrand, recalling their fears and hopes two decades ago as they brought the Cold War to an end.     

Recalling the Fall of the Berlin Wall

Twenty years after the fall of the Berlin Wall and the triumphant celebrations of the West, a new chapter of history has opened featuring the rising powers of Asia, led by China. Though embracing free markets, China has looked to its Confucian traditions instead of liberal democracy as the best route to good governance. Will China manage to achieve high growth and a harmonious society through a strong state and long‐range planning that puts messy Western democracy and its short‐term mindset to shame? Or, in the end, will the weak rule of law and absence of political accountability in a one‐party state undermine its promise? Francis Fukuyama and Kishore Mahbubani, the Singaporean thinker who has become the apostle of non‐Western modernity, debate these issues. In this section we also republish a collective memoir by George H.W. Bush, Mikhail Gorbachev, Margaret Thatcher and François Mitterrand, recalling their fears and hopes two decades ago as they brought the Cold War to an end.     

Multichannel Delivery of Public Services: A New and Complex Management Challenge

A strategic challenge facing all governments today is how to deliver services effectively and efficiently. At one time, they thought that they could meet this challenge by exploiting technology and going the E-government route with the promise of single-window, integrated, intelligent service delivery. Very quickly, however, they had to accept the fact that they would have to overcome a multitude of obstacles and that individual and corporate clients often preferred to receive service in traditional ways.

As a result, the delivery of public services is becoming increasingly multichannel: over the counter, by mail and telephone, over the Internet, via text and television, etc. There is therefore a need to identify some kind of model for managing this highly complex new phenomenon effectively and efficiently. By conducting research in the field with the help of case studies and international benchmarking, it was possible to identify the main variables in the degree of effectiveness and efficiency of multichannel public service delivery and develop the outline of a model representing the underlying factors.     

MANAGEMENT AUDIT IN THE MINISTRY OF DEFENCE

In 1981 the Ministry of Defence brought together the capabilities of staff inspection, internal audit and central management services under a Director General of Management Audit (DGMA) with the objectives of achieving greater co-ordination of these functions and of developing the concept of management audit, i.e. the bringing to bear of a'total audit' approach on selected departmental organizations or activities. This article comments on the progress made so far in developing this concept and describes changes which have taken place in the conduct of the individual disciplines which have had the effect of concentrating their attention on wider questions of efficiency, economy and effectiveness. The article goes on to describe the parallel development in the Ministry of Defence of new resource management machinery — responsibility budgets, a new management information system for ministers and top management (MINIS), management principles and, most recently, a re-organization of the Ministry itself — and the place which the management audit capability occupies within this.