Local government projectification in practice – a multiple institutional logic perspective

ABSTRACT

During the last couple of decades, we have witnessed a proliferation of the project as an organizational solution in sectors as diverse as IT, housing, social services, education and culture. Despite a growing interest in the phenomenon, we know surprisingly little of how processes of public sector projectification unfold in practice, especially at local government level. This article uses an institutional logic perspective to illustrate and argue that public sector projectification can be understood and conceptualized as the enactment of multiple, co-existing institutional logics, but where one particular logic is of growing importance – the project logic. It is argued that even though the project form is often perceived as more flexible than that of the bureaucracy, the practical outcome seldom represents a radical break with traditional, bureaucratic management models. Rather, it appears to aid a rediscovery and reuse of central bureaucratic practices and procedures such as reporting, documentation and standardization.     

The politics of partnerships: a study of police and housing collaboration to tackle anti-social behaviour on Australian public housing estates

This paper draws on the findings from a research project on partnership arrangements between the police and housing departments on three Australian public housing estates to tackle problems associated with illicit drug activity and anti-social behaviour (ASB). The analysis focused on the setting up of the partnerships and the interactions that followed from these institutional arrangements. The assumption that informs the paper is that when studying partnerships there is a need for a more critically framed analysis. The temptation to posit "a successful model" of what partnership entails and then to judge practices in relation to this model is considerable, but it inevitably falls into the trap of constructing a narrative of partnership success or failure in terms of individual agency (that is, the degree of commitment from individuals). The analysis undertaken in this paper has therefore sought to fathom a more complex set of organizational processes. Rather than confine the discussion to issues of success and failure, the study foregrounds the subjective accounts of individuals who work within partnership and the constraints they encounter. The paper therefore makes explicit the cultural tensions within and across agencies, contestation as to the extent of the policy "problem," and the divergent perspectives on the appropriate modes of intervention.     

The Adoption of Outcome-Related Performance Indicators in External Reporting: An Empirical Study

ABSTRACT

Contemporary government reforms are changing how performance is measured and evaluated, by shifting the focus from inputs and processes to outputs and outcomes. This study uses agency theory, institutional theory, and organizational information processing theory to hypothesize and assess how particular organizational and institutional factors affect the disclosure of outcome information by public organizations, drawing on an empirical analysis of 214 Italian public organizations. Organizational size, mode of service delivery, and the degree of regulation are all strongly associated with the disclosure of outcome indicators in external performance reports.     

The Competent Boundary Spanner

Inter-organizational frameworks of intervention dominate the resolution of complex societal problems facing the UK and many other countries. Strategic alliances, joint working arrangements, networks, partnerships and many other forms of collaboration across sectoral and organizational boundaries currently proliferate across the policy landscape. However, the discourse is positioned at an institutional and organizational level, and comparatively little attention is accorded to the pivotal role of individual actors in the management of inter-organizational relationships. This paper attempts to redress this balance by focusing on the skills, competencies and behaviour of boundary spanners. A critical review of the relevant literature, both from an institutional and relational perspective, is undertaken. This is complemented by some new empirical research that involves an engagement with groups of particular types of boundary spanner using a combination of surveys and in-depth interviews. Finally, a discussion makes connections between the existing literature and the research findings and offers suggestions for future areas of enquiry.     

'Public Service', 'Public Management' and the 'Modernization' of French Public Administration

Since the mid-1980s, successive French governments have attempted to 'modernize' the structures and methods of public administration. Although this vocabulary of 'modernization' is distinctly French, many of the actual reforms appear, at first sight, to be based on imported 'new public management' doctrines. In this article, we analyse the recent French reforms and the ideas underpinning them and we attempt to locate these reforms in their comparative context, employing data from a wide range of official reports and secondary sources and from a series of semi-structured interviews with senior officials. We build on the analyses of Hood (1991 and 1995) and Wright (1994) that if many governments are dealing with similar problems by adopting similar approaches to reforms based on private sector man-agement methods, the actual nature of the reforms in any individual state depends on the national context, or 'initial endowment'. In France, the importance of administrative law, the successful experience of nationalized, monopoly, public-service providers in the post-war period, the political weight and established rights of civil servants, and the idea of the 'general interest', represented at the local level by the prefect, explain many of the distinctive features of the hybrid modernization reforms. In short, an analysis of the policy of modernization and its origin leads to conclusions which are highly consistent with new institutional explanations of policy making (Hall 1987)     

Efficiency and legitimacy in collaborative public management: Mapping inter-local agreements in England using social network analysis

English councils have long aspired to be ‘self-sufficient’, providing services within single jurisdictions with limited inter-local collaboration. However, by 2017 almost all local councils (97 per cent) participated in one or more frontline or back-office ‘shared service’ involving 338 distinct partnerships. We analyse this new-found enthusiasm for inter-council collaboration by performing exploratory social network analysis on organizational and financial data for all 353 English councils. We examine factors predicting collaboration and the characteristics of the service networks that result, focusing on resource, organizational and political considerations. Propensity to collaborate was found to be unpredictable, but partner choice was rational, driven by geographical proximity and similarity in organizational and resource characteristics. We argue that, according to the institutional theory of organizations, both efficiency and legitimacy influenced these reform choices, and the risks of fashionable collaboration were mitigated by careful partner selection. We highlight implications for future quantitative research into symbolic (non-instrumental) forms of collaboration.     

Innovative ambiguities: NGOs’ use of interactive technology in Eastern Europe

This article examines the co-evolution of interactive technology and non-governmental organizations in Eastern Europe. It addresses, on the one side, the emergence of non-governmental organizations (NGOs) as actors who exhibit new organizational topographies and, on the other side, the emergence of the Internet and related interactive technologies that not only provide a new medium of representation in a virtual public sphere but also make possible fundamental changes in the character of organization. We explore how organizations of civil society can be a source of organizational and technological innovation necessary for their societies’ ongoing adaptability in a rapidly changing global economy. As such, NGOs can use new technologies within and beyond their existing roles as safety nets (to mitigate the new social problems of emerging market economies) and as safety valves (to give voice to social groups underrepresented in the newly competitive polities) to function as social entrepreneurs exploring new organizational forms as ongoing sources of innovation. Jonathan Bach is a postdoctoral research scholar at the Center for Organizational Innovation at the Institute for Social and Economic Research and Policy, Columbia University. He is the author ofBetween Sovereignty and Integration: German Foreign Policy and National Identity after 1989. David Stark is Arnold A. Saltzman Professor of Sociology and International Affairs at Columbia University and an external faculty member at the Santa Fe Institute. His current research examines the co-evolution of collaborative organization and interactive technologies in various settings, including new media startups in Manhattan and trading rooms on Wall Street, as well as NGOs in Eastern Europe.     

‘We are this hybrid’: Members’ search for organizational identity in an institutionalized public–private partnership

There has been significant scholarly interest in organizational hybridity, the combination of multiple institutional logics in one entity. However, the extant research has mainly studied the implications for organizations and individuals, neglecting the challenges for organizational members as a collective. To mitigate, this article examines how members of a British institutionalized public–private partnership grapple with the question of what their organization may be, highlighting the confusion they are experiencing and their attempts to overcome it. Drawing on the concept of organizational identity (theorized as the outcome of collective sensemaking), the analysis identifies two mechanisms that recursively connect the organization and its members. Relational positioning draws on possible configurations of institutional logics and associated identity resources while discursive framing captures members’ hopes and expectations. The main contribution of this article is a better understanding of collective sensemaking in hybrid organizations in the light of institutional complexity.     

THE LIMITS OF KNOWLEDGE MANAGEMENT FOR UK PUBLIC SERVICES MODERNIZATION: THE CASE OF PATIENT SAFETY AND SERVICE QUALITY

This article assesses the contribution of management of knowledge across organizational and professional boundaries towards improved public services. We empirically investigate the potential for knowledge sharing within the context of the NHS modernization agenda, taking as our focus the current ‘patient safety’ policy agenda. Specifically, we evaluate the introduction of a knowledge management system, namely the National Reporting and Learning System (NRSL) and its impact in the area of operating theatres within a university teaching hospital. We suggest that government policy in this area needs to reflect more upon limits to the management of knowledge and issues of the nature of knowledge, professional cultures and institutional power and politics.     

‘What Counts is What Works’? Constructing Evaluations Of Market Mechanisms

This paper draws on a study of the introduction of market testing in the UK civil service to explore ways in which managers involved in the implementation of the new policy constructed evaluations of its impact. It is structured around three arguments. The first concerns the problems of evaluating 'what works' in the multi-stakeholder, multi-goal context of public management. The research highlights a range of overlapping and sometimes conflicting evaluation criteria across different organizational and occupational groupings. The second argument explores the difficulties of evaluation in the context of shifting policy objectives and the dynamic nature of institutional change. The research shows how the practitioners involved shaped and reshaped their construction of events over time as unanticipated benefits and disbenefits became evident. It also suggests ways in which they responded to the changing policy context, constructing new rules and norms of action over time. The third argument concerns the different levels of analysis underpinning managers' constructions of 'efficiency' and 'effectiveness', and how these constructions were deployed as strategies of legitimation in shaping the process of institutional change.     

The effect of institutional support and relational capital on knowledge mobilization in public administration research

Knowledge mobilization (KMb) takes a programmatic approach to empower and motivate scholars to connect research with policy-making through disseminating research to knowledge users, acquiring information from practitioners, and responding to the acquired information. The present study aims to investigate the influence of institutional-level factors on researchers' KMb activities. One hundred fifty-five researchers in the field of public administration across China participated in an online survey study. The participants reported their KMb activities, perceived institutional support, and relational capital. The results demonstrate that both the strength of institutional support and relational capital are positively associated with researchers' KMb activities. Moreover, the effect of institutional support tends to be stronger when an institution has more relational capital. The study highlights that research institutions should take programmatic approaches to empower their researchers to be actively involved in the knowledge co-production process and make a systematic effort at the institutional level to build a well-developed collaborative network.     

Local Government Modernization in Germany: Between Incrementalism and Reform Waves

In taking a historical-institutionlist approach, this paper looks at the development of administrative reforms in German local government which, because of the comparatively high degree of political and administrative decentralization of the Federal Republic has played a crucial role in the latter's entire politico-administrative setting and, hence, in its institutional reforms. The paper mainly identifies three stages in the post-war development of administrative reforms. During the 'planning movement' of the late 1960s and early 1970s, Germany's local level government and administration underwent significant and, to a considerable degree, lasting institutional changes. The 1980s were a period of incrementalist adaptation. Since the beginning of the 1990s, conspicuously later than in the Anglo-Saxon and Scandinavian countries, but earlier and faster than the federal and the Länder levels, Germany's local government has embarked upon dramatic changes particularly on two scores. First, in a growing number of municipalities and counties, administrative modernization was incorporated under the heading of a 'New Steering Model' (NSM) that largely drew on the dominant international New Public Management (NPM) debate. The dynamics of the ongoing administrative reforms are marked by an 'amalgamation' of NPM/NSM and earlier ('traditional') reform concepts. Secondly, at the same time, the political institutions of local government have under-gone a significant shift as a result of the introduction of direct democratic procedures (direct election of mayors and heads of counties, binding local referenda). The paper argues that it is this co-incidence and co-evolution of administrative and political reforms that make for the peculiarity of Germany's current modernization trajectory, distinguishing it from the Anglo-Saxon and, to a lesser degree, from the Scandinavian modernization paths.     

Modernization,order, and the erosion of a democratic ideal: American political science 1960–70

Studies of ‘modernization’ conducted by American political scientists over the past decade (1960–70) show a shift in teleological emphasis through which democracy as a goal for developing polities has been gradually displaced by another ideal, that of institutional order. This shift in emphasis is here related (a) to an emerging pattern of political dislocation in new states; (b) to United States government policy in dealing with these states; (c) to the domestic politics of the United States, and in particular to the salience of ‘law and order’ as a political issue in the late 1960s. Preoccupied with problems of political order at home and abroad, political scientists have looked to authoritarian solutions: in some cases they have re‐examined Lenin's organizational principles, and found merit in the achievements of ‘totalitarian’ regimes which can build and maintain stable political institutions.     

Political structures and financial liberalization in pre-crisis East Asia

East Asian economies differed dramatically in their vulnerability to the financial shocks of 1997–98. In the current literature on the Asian crisis, one key factor commonly adduced to explain the uneven crises is different national approaches to liberalizing the financial market. While extant analyses have yielded important insights into the correlation between divergent liberalization patterns and uneven crises, they have failed to deal with the crucial question of why East Asian economies diverged in their respective paths to financial market liberalization. To account for differences in liberalization approaches, this article develops an institutional explanation of financial policy choices. It posits that variations in liberalization patterns stem from fundamental differences in the organizational structures of the private sector, the bureaucracy, and the party system that shape the economic interests and political behavior of social groups and state agencies in the policy-making process. In making this argument, the article focuses on Korea, Singapore, Taiwan, and Thailand, the four major East Asian economies that pursued different liberalization strategies during the 1980s and 1990s and had contrasting performance in the recent financial crisis. It argues that cross-national differences in the above-mentioned domestic political structures within the four economies are the primary sources of their divergent liberalization approaches and outcomes, which, in turn, impacted financial stability to differing degrees and generated varying abilities to withstand external shocks. The author thanks Benjamin Cohen, Stephan Haggard, Otto Holman, Geoffrey Underhill, and anonymous SCID reviewers for their helpul comments on earlier drafts. Generous financial support from the Amsterdam School for Social Science Research and the Netherlands Fellowship Program is gratefully acknowledged. The usual disclaimers apply. Xiaoke Zhang is research fellow in the Amsterdam School for Social Science Research and the Department of Political Science at the University of Amsterdam. He is the author ofThe Changing Politics of Finance in Korea and Thailand (Routledge, 2002) and the co-editor ofInternational Financial Governance under Stress (Cambridge University Press 2003).     

Social housing under the Workers’ Party government: an analysis of the private sector in Brazil

This article examines the patterns of government intervention in social housing in Brazil to analyse the role of the private sector in the elaboration and implementation of social housing policies during the Workers’ Party government. It draws on case study research, and I examine areas which impact on the way social housing has been implemented since 2003 to study the concentration of decision power the private construction sector has on social housing policymaking, which sets the tone of government intervention on social housing. I argue this was part of the Workers’ Party’s approach to neoliberal policies in a more moderated style, a type of intervention repeated on numerous occasions under previous administrations. This article concludes by noting the prominent role of the private sector in social housing developments.     

Organizational theory and structure: An analysis of three perspectives

This article examines three contemporary organizational theories as they relate to organization structure. The three approaches selected are: social systems delimitation, organization learning, and organizational theory as metaphors. Each view represents a different approach to issues concerning the direction of organization theory and design. It will be argued that, in many respects, the future development of organizational theory will, to a large extent, build upon these approaches and the issues they pose for organization design.     

Life Satisfaction in Latin America: A Size-of-Place Analysis

In Latin America, countries can be divided into two groups: those where people in villages and small towns are happier than people in middle sized cities, and those where they are less happy. Four possible reasons for these patterns are explored: level of economic development, social values, public social spending, and presence of indigenous population. In regressions on happiness of each explanatory factor separately, development and public social spending (especially on health, housing, and social security) are the most important. In a joint regression, public social spending is found to be the main explanation of the different happiness patterns.     

How best to open up local democracy? A randomised experiment to encourage contested elections and greater representativeness in English parish councils

Interventions aimed at increasing the supply and representativeness of elected officials range from facilitative to the formally authorised. This paper reports on a field experiment aimed at testing the effect of facilitative approaches at the local level based on a collaboration between parish councils and the research team. We randomly allocated 818 parish council clerks across five counties in Southern England, either to receive information and the opportunity for member training for recruitment, or not to receive this contact. We investigated the effect of this intervention on political recruitment. Despite evidence of an effect on use of social media, our results suggest that there are significant institutional and structural barriers to participation in local politics that cannot easily be overcome using facilitative measures.     

Social Capital and Institutional Trust: Evidence from Bolivia's Popular Participation Decentralisation Reforms

This article uses Bolivia's emblematic process of decentralisation (Popular Participation) to explore the elusive relationship between interpersonal and institutional trust, as central components of social capital. The evidence corroborates the notion that basic social interaction and more complex institutional settings are strongly co-related, such as the trust that individuals place in their governments and institutions. The data also shows that social capital has a direct effect on civic activism and political behaviour at the individual level. The notion of social capital is present throughout the analysis as this type of capital allows observing and measuring changes in social structures that affect more complex institutional arrangements.     

Local Authorities and Non–elected Agencies: Strategic Responses and Organizational Networks

This article deals with developing relationships between local authorities and local non–elected public service agencies in England and Wales. It classifies local authority responses to the growth of the non–elected state. Account is taken of varying agency characteristics and the constraints and dilemmas they face. From the local authority vantage point what is at stake is organizational (re)positioning in a changing institutional environment. Insights derived from strategic management are therefore utilized. But resource dependencies and exchanges also manifest themselves in these emerging relationships. Moreover, account must be taken of the scope for local authorities to be 'network managers' given the structural reconfiguration of the local state. The analysis therefore takes on board organizational networking theoretical frameworks. Although central government remains best placed to manipulate the 'rules of the [new and uncertain] game', interesting possibilities present themselves if local authorities can show more strategic skill than in the recent past.