POLICY-MAKING AND THE SCOTTISH OFFICE: THE DESIGNATION OF CUMBERNAULD NEW TOWN

The role of the Scottish Office in policy-making has been subject to a number of interpretations. It is difficult to regard it as having its own reserved policy spheres but it is clear that in certain circumstances it has the ability to forge its own policy lines. In the 1950s, in contradiction to the stated policy of the then Conservative Government. the Scottish Office was able to secure the designation of a new town at Cumbernauld. The main impetus for this policy came from the civil servants in the Department of Health for Scotland, seeking to preserve the philosophy of the 1946 Clyde Valley Plan. The case study throws considerable light on the bargaining process within government, the role of the secretary of state as spokesman for Scottish interests and the way in which the Scottish Office can gain Cabinet approval for its proposals.     

DECENTRING POLICY NETWORKS: LESSONS AND PROSPECTS

This Conclusion reflects on the contributions the various articles in this special issue have made to decentred studies of policy networks. It concentrates on three areas: the role of meaning in action in shaping networks; new research agendas that have been potentially opened; and key theoretical debates. In considering the theoretical debates, this Conclusion considers various criticisms of the decentred approach to exploring policy networks, before offering some suggestions for those who want to undertake decentred studies of policy networks.     

The governance of urban regeneration: a critique of the 'governing without government' thesis

This paper offers a critique of the concept of governance as networks. Using the complementary concept of regime governance, it argues that networks are not the primary mode of governance in the politics of urban regeneration in the UK. Drawing on primary and secondary material, it is argued that Central Government is becoming more influential in the local policy arena. In the 'mix' of market, hierarchy and network, hierarchy is more pervasive than network. It is therefore argued that partnerships should be treated as a distinct mode of governance. These conclusions demonstrate that despite the fashion for copying urban policies from the USA, local politics in the UK remain very different. Ironically, the transfer of policies developed in the USA has tended to entrench divergent practices and outcomes. The UK does not, therefore, appear to be moving toward the US model of regime politics. It is concluded that the partnership and network/regime models of governance should be subjected to rigorous comparative studies.     

EXPLAINING RADICAL POLICY CHANGE: THE CASE OF CLIMATE CHANGE AND ENERGY POLICY UNDER THE BRITISH LABOUR GOVERNMENT 2006–10

An innovative framework combining the ‘multiple streams’ (MS) and ‘punctuated equilibrium’ (PE) models of agenda‐setting is used to explain the transformation of UK climate change and energy policy under the Labour Government between 2006 and 2010. The coupling of the problem, politics and policy streams by policy entrepreneurs (MS), and changes in policy image and institutional venues (PE), were critical in opening a policy window, disrupting the existing policy monopoly and enabling radical policy initiatives. The case study suggests two revisions to the models: (1) policy windows can remain open far longer than either model typically predicts; and (2) party politics, especially where party competition generates a ‘competitive consensus’, can be important for both initiating and prolonging policy change in parliamentary systems. An important factor typically overlooked by both models is the significant policy entrepreneurship role that government ministers can play, particularly when an issue becomes part of their ‘narrative identity’.     

CENTRAL GOVERNMENT DEPARTMENTS AND THE POLICY PROCESS

Government departments are central organizations in the development of public policy. Yet there is very little literature on the political role of departments, their internal relationships and their relationships with other departments and other government actors and institutions. This article reviews the extant literature on government departments. It argues that much of the existing research has either focused on the role of the Prime Minister or it has been institutional and static, providing an analysis of the administration and organization of departments rather than political interactions. The article therefore provides an alternative research agenda which stresses the need to examine the relationships and networks that exist within and between departments and how departments react to events and interests in the outside world.     

ISRAEL'S AUDITOR AS POLICY-MAKER

Supreme audit institutions claim to avoid directly criticizing government policy. However, their assertions do not reflect reality. Israel's State Comptroller is explicit in criticizing government policy, and suggesting other policies in their place. The US General Accounting Office, the UK National Audit Office, and the Philippines Commission on Audit also criticize policy, but with styles that are more subtle and indirect than the Israeli auditor's. A review of the responses to Israel's audit reports reveals the extent of policy influence and the constraints that limit the auditor's role as a policy-maker.     

Managing policy‐making in the local climate governance landscape: The role of network administrative organizations and member cities

Trans‐municipal networks (TMNs) have reshaped the landscape around local government action on global climate policy. Past research has focused on why cities join TMNs and the impact that membership has on local action. This study considers a potential reverse effect: namely, that cities' membership choices position them to influence TMNs' overall priorities. In considering this, we emphasize the role of network administrative organizations (NAOs) and posit that the multiple climate‐related networks, which share members and operate in overlapping geographic and issue spaces, are bound together as part of a meta‐network. We utilize social network analysis and data on membership in four climate‐related TMNs to examine the factors that shape how cities can influence meta‐network priorities. We find that cities with local vulnerabilities tend to be located in network positions that enable them to influence the meta‐network's overall priorities.     

eGOVERNMENT AND THE TRANSFORMATION AGENDA

Government policy-making emphasis worldwide is moving increasingly to how ICT can be used to achieve efficiency savings ( Gershon 2004 ) or to transform activities ( Cabinet Office; Transformational Government 2005 ). The role of ICT in achieving efficiency benefits or supporting transformational change is almost universally accepted by policy-makers, despite the fact that little robust evidence exists.
eGovernment evaluation methodologies are reviewed and evidence is provided in this paper to demonstrate that transformational eGovernment projects produce greater benefits than other types of initiatives. The level of benefits for different groups of beneficiaries is examined. A key factor determining benefits and impact of any project is the number of users of the service and/or the frequency of use of a system.     

Neighbourhood Governance: Contested Rationales within a Multi-Level Setting – A Study of Manchester

‘Neighbourhood’ is a long standing concept in local governance which was re-energised as part of the post-1997 New Labour policy paradigm. This paper builds on the work of Lowndes and Sullivan which identified four distinct rationales for neighbourhood working – civic, social, political and economic. The utility of the framework is explored through primary research in Manchester, UK. The research shows that different rationales are held by actors at different locations within the complex system of multi-level governance within which neighbourhood policy is made and implemented. Neighbourhood approaches to urban regeneration exist within a congested governance environment. In Manchester, regeneration has been strongly driven by the self-styled ‘Team Manchester’ who have provided an urban entrepreneurial vision for change in the city. Significantly, however, interventions at the neighbourhood level have shown potential for creating opportunities for citizen and community dissent and empowerment not subsumed with the narrative of the entrepreneurial city. Lowndes and Sullivan's framework provides important analytical building blocks and illuminating tools for understanding neighbourhood approaches. This research points to the merit of a dynamic approach recognising competing perspectives and contested agendas.     

Collaborative Governance of Ageing: Challenges for Local Government in Partnering with the Seniors' Sector

This paper considers the role local government plays in the formation and effectiveness of local collaborative partnerships in ageing well. Collaborative processes are central to emerging models of local governance and have received considerable practical and theoretical consideration with respect to many policy domains. Such collaborations require local organisations and actors from various sectors to work together in partnerships and networks to achieve policy goals. This paper reports research from two collaborations in southeast Queensland municipalities, and shows that joint efforts between local government and community organisations pose challenges. These relate to the political context and specifically to the tensions between flexibility and coordination; and tensions between harnessing community resources and investing resources. We highlight the value of a framing role for local government to ensure that such governance models for local action on ageing realise a collaborative advantage. In particular, the findings highlight the need for local government to invest in these processes and build social infrastructure and assets in order to develop improved ways of facilitating collaborative governance.     

Homelessness—The local authorities' approach

This article reviews the initial experience of Scottish local authorities in accommodating the significant and far‐reaching changes to service provision arising from the Local Government Act 1988. It considers some issues relevant to the changing environment and culture of local government, now operating in a regime of enforced tendering, and considers some relevant policy and practice implications for local authorities. It is not intended to be a definitive study but rather an attempt to analyse some key themes and issues related to management of the tendering process and of tendered services themselves. It is based on our discussions with various officers and members; we are grateful for their willing assistance.     

From population control to "reproductive rights": ideological influences in population policy

The author examines some of the ideological influences which have shaped population control policy in recent decades and considers the growing critique of what is now regarded as a narrowly focused policy, one which is based upon a simplistic definition and analysis of population growth in the less developed world. Focus is given to the important role of professional demographers in the US, who tailored their theories to provide a respectable justification for questionable policy intervention. The emergence of a population establishment in the US, based upon interconnected networks of foundations, private population organizations, and university population centers is outlined. These institutions provide a willing conduit for US government funding through the US Agency for International Development. Relevant interdisciplinary literature has raised concerns over issues such as the outside intervention in national sovereignty, ethical aspects associated with the implementation of fertility control programs, the exclusion of Third World scholars from research programs conducted in their own countries, and the unwillingness of programs to consider complex social and cultural dimensions of high fertility.     

Health and Local Government Partnerships: The Local Government Policy Context

This article explores partnerships between health and local government from the local government perspective; placing developments between the two sectors within the wider context of the Local Government Modernisation agenda. A number of commentators have argued that developments since 1997 – in particular the emphasis on community leadership and the new power of well-being – have provided local authorities with an exciting opportunity to reclaim a more pivotal role in shaping the health agenda at the local level. Such a role would be based on promoting well-being and a good quality of life, in keeping with the social model of health. In the longer run this reclaimed role could produce a shift in what has become the main boundary between health and local government: the health–social care boundary. The article reviews developments in three key areas: the health–social care boundary; the core components of the Local Government Modernisation Agenda; and the relationship between regeneration and health. The paper concludes that although progress has been made in regeneration and health and there is potential in elements of the Modernisation Agenda that these do not equate to a paradigm shift in local government's perspective on health. Instead, the social care boundary continues to dominate local government's vision of health. Central to this picture of modest progress is the substantial barrier to more radical change provided by the performance management frameworks governing both sectors.     

EMBRYONIC ASSOCIATIONALISM: NEW LABOUR AND URBAN GOVERNANCE

This article considers the role of ideas in New Labour’s approach to the governance of urban regeneration and characterizes this approach as ‘embryonic associationalism’. This approach contrasts with the economic rationalism of previous Conservative governments and leads to a more determined effort to empower local community groups within the policy process. We analyse the effects of this shift in approach in practice through a comparative case study of changing patterns of governance in different areas of the English city of Sheffield over a ten‐year period. We conclude that while other factors are important in shaping the nature of community empowerment, New Labour’s approach has promoted a political environment in which it is increasingly difficult for local state actors to ignore the voice of local communities. However, while we refer to this as ‘New Labour’s approach’, we are clear that this relates to a tradition of ideas that is far from new in Labour thought.     

Evaluating Public Management Reform: Designing a'Joined Up' Approach to Researching the Local Government Modernisation Agenda

This article examines the major programme of research on the'Local Government Modernisation Agenda' which is currently being funded by the UK's Office of the Deputy Prime Minister. It argues that this heralds a new approach to government-funded research which seeks to address some of the weakness of previous evaluations. In particular it involves longer-term studies than have been conducted in the past and an attempt to achieve a much greater degree of collaboration between research teams. It is also trying to ensure effective application of the learning derived from evaluations. This new approach raises a number of practical and methodological problems, including in particular the need for effective data sharing among research teams and with other agencies. If this can be achieved there is though a real prospect that the research will provide useful insights that help to inform current and future policy and practice at both national and local levels.     

THE DEVELOPMENT OF THE THATCHER GOVERNMENT'S 'GRAND STRATEGY' FOR THE CIVIL SERVICE: A PUBLIC POLICY PERSPECTIVE

Since the Thatcher Government came to office, the policies which it has pursued towards the civil service have been characterized by its determination to emphasize political control over the work of government departments and to'de-privilege' the civil service. The paper traces and evaluates the development of the Conservative Government's'grand strategy' for the civil service which was eventually given the form of the financial management initiative in 1982, an attempt to universalize MINIS and institutionalize Raynerism. Among other things, this policy study considers the cuts in civil service numbers and the changes in its hierarchy, the dismantling of the Priestley pay system, the civil service strike of 1981, and the disbanding of the Civil Service Department, involving as it did the dismissal of the Head of the Home Civil Service.     

Book Reviews

Book review in this article
The Study of Government: Political Science and Public Administration F.F.Ridley.
Bureaucratic Encounters: A Pilot Study in the Evaluation of Government Services Daniel Katz, Barbara A.Gutek, Robert L.Kahn, and Eugenia Barton.
The Local Government Act 1972: Problems of Implementation P.G.Richards.
Practical Corporate Planning in Local Government John Skitt.
Regional Devolution and Social Policy Edward Craven (ed).
Management in the Education Service: Challenge and Response Society of Education Officers.
Appraisal for Staff Development Ronald Wraith.
The Cabinet Office to 1945 S.S.Wilson.
Ethical Conduct: Guidelines for Government Employees Kenneth Kernaghan.
Presidential Advisory Commissions Thomas R.Wolanin.     

Why madrassah education reforms don’t work in Pakistan

Despite global pressure and national security concerns, the efforts of the Government of Pakistan to reform the madrassah system have proven to be futile. Extant literature on madrassah reform challenges relies overwhelmingly on information provided by governments and experts situated outside of these institutions. While these studies and reports present important findings and viable analysis on madrassah systems; most of the research fails to give voice to the major stakeholders of this system itself, such as the administration staff, teachers, students and parents. Our study fills this crucial gap by conducting semi-structured interviews and field observations inside Pakistani madaris (plural for madrassah) and their professional associations. We find that these madaris have been reluctant to participate in policy interventions offered by the government due to a major trust deficit brought on by differences over financial and curriculum regulation, degree recognition and the government’s role in shaping popular perceptions about madaris. This reluctance has turned down attempts for madrassah reformation and has in turn made them vulnerable to radicalisation. We conclude with policy recommendations for more effective government reforms and a stronger relationship between madrassah representatives and the Government of Pakistan.     

Institutions,interests, and policy support: Experimental evidence from China

Policy support matters for the success of public policies. It is still unclear how governments can garner support for policies with high costs. Using a conjoint experiment in China, we demonstrate that governments can encourage policy support by offering institutional services and material interests to policy targets. In particular, citizens become more willing to support policies when governments timely disclose policy information and respond to and incorporate their voices in the policy design. Government subsidies in both the short and long runs also increase citizens' policy support. In addition, government transparency and long-run subsidies are complementary to enhancing policy support; the role of institutions is strengthened when citizens are exposed to severe policy problems.     

Policy Network Transformation: The Implementation Of The Ec Directive On Packaging And Packaging Waste

Policy network analysis has been criticized for failing to adopt a sufficiently dynamic approach to the study of policy-making processes. There have been, however, a number of studies illustrating how policy networks change, recognizing that they are not static entities but respond to changes in the policy environment. This article applies policy network analysis to the negotiation of plans to implement the 1994 EC Packaging and Packaging Waste Directive in the UK and provides a further contribution to the literature on the formation and transformation of policy networks. The analysis reveals significant changes in the structure and operation of the policy network during the period studied. The reasons for such changes confirm those put forward by other policy network analysts, such as the power of the actors involved and conflicts between them. Other reasons include the role of the government and the tight schedule laid out by the directive.