PUBLIC MANAGEMENT REFORM IN THE UK AND ITS CONSEQUENCES FOR PROFESSIONAL ORGANIZATION: A COMPARATIVE ANALYSIS

It is often assumed in the literature on public management reforms that radical changes in values, work and organization have occurred or are under way. In this paper our aim is to raise questions about this account. Focusing on three services in the UK, each dominated by organized professions – health care, housing, and social services – significant variations in the effectiveness of reforms are noted. The available research also suggests that these outcomes have been inversely proportional to the efforts expended on introducing new management practices. The most radical changes have been in housing, where, paradoxically, successive UK governments focused least attention. By contrast, in health and social services, management restructuring has been less effective, despite the greater resources devoted to it. This variation is attributed to professional values and institutions, against which reforms were directed, and the extent to which different groups became locked either into strategies of resistance or accommodation.     

Resettlement for China's Three Gorges Dam: socio-economic impact and institutional tensions

Large dams have been an important component of infrastructure development in capitalist and communist countries alike. In 1998, changing world attitudes on large dams led to a two-year World Commission on Dams and new global standards may soon insist that future projects pay fair compensation so that resettlement becomes voluntary. Now, 10 years after introduction of economic reforms, China is mobilizing its resources to build the world's largest dam. This fulfils a longstanding ambition to impound the Yangtze River in Central China at the Three Gorges and use the hydropower, improved navigation and flood control to develop the economy.This paper examines the socio-economic impact of Three Gorges Dam on over 1.3 million people to be displaced while China is in transition to a market economy. We consider resettlement in terms of the decision-making structure, property rights and incentives to move, and how the project exacerbates problems created by market reforms, especially rising unemployment and deteriorating public health. We conclude the project is boosting economic expectations while adversely affecting large sections of the population, and this could provoke widespread social unrest and eventual changes in political institutions.     

Performance Management,Evaluation and Learning in ‘Modern’ Local Government

Public sector reforms throughout OECD member states are producing a new model of ‘public governance’ embodying a more modest role for the state and a strong emphasis on performance management. In the UK, the development of performance management in the context of the ‘new public management’ has been primarily ‘top‐down’ with a dominant concern for enhancing control and ‘upwards account‐ability’ rather than promoting learning and improvement. The development of performance management and evaluation in local government in the UK has been conditioned by external pressures, especially reforms imposed by central government, which have encouraged an ‘instrumental–managerial’ focus on performance measurement. The new Labour government's programme of ‘modernizing local government’ places considerable emphasis on performance review and evaluation as a driver of continuous improvement in promoting Best Value. However, recent research has indicated that the capacity for evaluation in local government is uneven and many obstacles to evaluation exist in organizational cultures. Local authorities need to go beyond the development of review systems and processes to ensure that the capacity for evaluation and learning is embedded as an attribute of ‘culture’ in order to achieve the purpose of Best Value.     

Performance Management, Evaluation and Learning in 'Modern' Local Government

Public sector reforms throughout OECD member states are producing a new model of 'public governance' embodying a more modest role for the state and a strong emphasis on performance management. In the UK, the development of performance management in the context of the 'new public management' has been primarily 'top-down' with a dominant concern for enhancing control and 'upwards account-ability' rather than promoting learning and improvement. The development of performance management and evaluation in local government in the UK has been conditioned by external pressures, especially reforms imposed by central government, which have encouraged an 'instrumental–managerial' focus on performance measurement. The new Labour government's programme of 'modernizing local government' places considerable emphasis on performance review and evaluation as a driver of continuous improvement in promoting Best Value. However, recent research has indicated that the capacity for evaluation in local government is uneven and many obstacles to evaluation exist in organizational cultures. Local authorities need to go beyond the development of review systems and processes to ensure that the capacity for evaluation and learning is embedded as an attribute of 'culture' in order to achieve the purpose of Best Value.     

Transition to a market economy and sustained growth. Implications for the post-Washington consensus

Transition to a market economy is a lengthy process comprised of various spheres of economic activities. The belief that a market economy can be introduced by “shock therapy” is wrong, and in several cases has caused more problems than it has solved. Since a market economy requires adequate institutional structures, transition can be executed only in a gradual manner. Despite the fact that so-called Washington consensus, i.e. a set of policies aiming to shift from stabilization to growth, was developed without concern for post-socialist transformation, these ideas have significantly influenced the path of thought and action in Eastern Europe and the former Soviet Union. After a decade of transition and lasting depression, a new, post-Washington consensus is developing. Major policy conclusions suggest that the core of emerging consensus, also based on the lessons from transitions, is institutional building. Only with strong institutions can liberalization and privatization put emerging post-socialist markets on the path of sustainable growth. Yet, to accomplish such a task the policy reforms must also take into consideration the need for equitable growth and the new role of the state. The latter must not retire from economic activities, but ought to change its role to support the reforms and integration of the post-socialist countries into the world economy in the era of globalization, of which the post-communist transition is an important part.     

Public Sector Reform in Central Asia and the Caucasus

Many developing countries are constantly seeking to reform their public services as part of a wider agenda which supports moves to a market economy and better governance arrangements. Some have embraced public management reforms as the template for their activities with limited success. This paper considers existing research on the impact of public sector reform in developing countries and offers an alternative approach, through case studies of Azerbaijan, Georgia and Kazakhstan, based on two keys elements: an agenda which attempts to shift developing countries to an outcomes based accountability approach operationalized through a “quality of life” framework; and, peer‐to‐peer learning.     

DISTINCTIVENESS OF ADMINISTRATIVE REFORM IN GREECE,ITALY, PORTUGAL AND SPAIN. COMMON CHARACTERISTICS OF CONTEXT,ADMINISTRATIONS AND REFORMS

This article, the final part of the symposium, concentrates on the common characteristics of Southern European states and administrations that can explain the distinctiveness of the reforms there. First, we briefly consider the theoretical aspect of the country papers, that is, historical institutionalism. We then briefly review some common features of contextual factors such as welfare state, economy and civic culture. This is followed by a discussion of some typical characteristics of Southern European administrations: legalism, politicization and clientelism. Finally, we discuss some common features of reform in Southern Europe. Reform in the region encompasses not only new public management; other reforms have also occurred. However, political polarization means these countries lack the stability necessary to implement and carry out reform effectively. In terms of improvement in quality, efficiency and client orientation of public service provision, the far‐reaching politicization of the civil service gives a distinctive twist to any such claims.     

Personnel management and productivity reform: Taming the civil service in Great Britain and the United States

This paper examines recent efforts to improve public sector productivity through reform of personnel systems and processes in Great Britain and the United States. Productivity efforts in both countries have been stimulated by and implemented in highly politicized environments. They have been attempts to secure the values of not only economy and efficiency, but also executive leadership and political responsiveness. The implications of these productivity reforms for the performance and character of the public service have been only dimly understood.     

Personnel management and productivity reform: Taming the civil service in Great Britain and the United States

This paper examines recent efforts to improve public sector productivity through reform of personnel systems and processes in Great Britain and the United States. Productivity efforts in both countries have been stimulated by and implemented in highly politicized environments. They have been attempts to secure the values of not only economy and efficiency but also executive leadership and political responsiveness. The implica-tions of these productivity reforms for the performance and character of the public service have been only dimly understood.     

Organizational Trust and Accountability Reforms in Public Management: Analysis of Inter-agency Implementation Relations in Kenya

Contemporary governments have persistently responded to accruing implementation blind-spots by further restructuration of public bureaucracies. This has come with increased agencification and coordination efforts to enhance organizational efficacy and to produce trust for legitimation purposes. Accountability reforms in particular rarely address non-formal implementation processes that seem to characterize these efforts, mainly, inter-organizational trust. This is despite mounting evidences on the centrality of organizational trust in collaborative implementation processes of policy reforms. Basing on qualitative data from Kenya, this paper explores the production of organizational trust and its influence on the implementation environments for accountability reforms between oversight and governmental institutions. Data indicate that common difficulties in collaborative-implementation framework like fragile horizontal accountability-relations, misinterpretations of authority, obsession with control and autonomy, poor organizational-communication mechanisms, public trust deficits, poor internalization and institutionalization, etc. also correspond to problems of organizational trust. So, it is suggested that besides building public and interpersonnel trust, a policy design should also device steps that can strengthen internal-accountability systems, reduce some forms of bureaucratic slackness, enhance interorganizational communication and justice systems. This should improve inter-agency trust and ease cultural-instrumental tensions typical in collaborative implementation relations common in modern public administration.     

Local and regional public management reforms in Switzerland

Public management reforms at the local (community) and regional (canton) level in Switzerland almost all embrace elements of the new public management. In addition, in Switzerland, the merging of small communities as well as new developments such as electronic government are becoming apparent. The new public management model has been adapted for Swiss needs according to the perception of decision makers on problems that require solution in a Swiss context. NPM has developed, therefore, into rather different models in practice, aimed at the solution of these diverse problems. Foreign examples, such as the Dutch Tilburg Model and the German Neues Steuerungsmodell , played a major role at the start of this process, but have continuously lost their influence as actual models to be emulated. The most outstanding peculiarities of the Swiss reforms are an early and subsequent outcome focus together with the strong influence of direct democracy.     

Marketization, Managers and Moral Strain: Chairmen, Directors and Public Service Ethos in the National Health Service

Survival of the public service ethos in Britain has been called into question following introduction of the 'new public management' and marketizing reforms in much of the public sector. This article examines how these developments have occurred in the NHS, using survey data to analyse NHS board members' substantive ethical values. Unexpectedly the results suggest that NHS board members with a predominantly NHS background appear less ethically conservative, more flexible and less risk–averse than those recruited from non–NHS backgrounds; and that as yet the NHS management 'culture' is not very homogenous in respect of 'business ethics'. The NHS reforms also appear to accentuate the tensions between transparent public accountability in NHS management and incentives not to publicize certain types of information. Recent codification of NHS 'business ethics' can be understood as an attempt to buttress the public service ethos against the increased moral strains of a quasi–market.     

Reinventing Governance for Performance in South Asia: Impacts on Citizenship Rights

Abstract

In line with the global trend of “reinventing governance” based on market‐driven policies and structures, South Asian countries have adopted some major reforms in governance during the recent two decades. While this market‐led shift in governance is largely intended to enhance its performance in terms of greater efficiency and quality, there is a tendency to overlook its implications for the rights and entitlements of citizens in these countries. The article examines the basic tenets or features of this transition in governance, encompassing the replacement of public sector by private sector and the transformation of public management based on business principles. The main objective, however, is to examine the critical impacts of this new mode of governance on the political and social rights of citizens in South Asia. The article concludes by stressing the need for paying adequate attention to citizenship rights in pursuing such reforms in governance.     

The Politics of State Sector Reforms in Vietnam: Contested Agendas and Uncertain Trajectories

The 1997 Asian financial crisis and subsequent impact on Vietnam's economy reignited a decade-old internal debate over economic reforms (doi moi). Heralded by many as a success story, the pace of doi moi was the cause of sharp conflicts within the ruling party as the IMF prescribed speeding up the process. At first glance it seemed that neo-liberalism was triumphant. However, this article argues that we need to take a closer look at the content and meaning of 'reform' in the Vietnamese context. Neo-liberal reforms were modified to ensure they consolidated rather than unravelled the authority of the Vietnamese state and to accommodate the new hybrids of state-business alliances.     

PUBLIC MANAGEMENT AND POLITICS: SENIOR BUREAUCRATS IN FRANCE

Why is new public management reform so difficult to implement in France? In order to answer this question, this article examines the changes that have affected the higher civil service since the late 1970s. Decision‐making networks have been considerably politicized, and public policies are now largely devised by ministerial cabinets staffs. Simultaneously, the tasks of career senior civil servants are increasingly technical and specialized. The management reforms undertaken since 2002 by an economically liberal government might have offered senior bureaucrats the opportunity to regain a more active professional role, but the reforms run counter to their political culture, since the large majority of them still share a leftwing political ideology. Reformers seem to have no other choice than to change the institutional system in order to resolve this contradiction.     

Public Accountability in Malaysia: Challenges and Critical Concerns

Despite its laudable roles in steering the process of socioeconomic development, government bureaucracy in Malaysia has not escaped public criticisms for its inefficiency, corruption, and failure to guard public interests. The media, civil society groups, intelligentsia, and the political opposition have successfully utilized the major scandals to highlight the growing public concern over the poor performance of the bureaucracy and its lack of accountability and responsiveness. This has provided impetus for the “clean and efficient government” movement initiated in the early 1980s and a series of subsequent efforts aimed at promoting appropriate values and ethics among public officials. Numerous rules and regulations have been framed, major reforms have been introduced in various spheres of administration, and an extensive program of training and bureaucratic reorientation has been undertaken. Despite all this, recent evidence suggests that the public service continues to suffer from problems of corruption and other irregularities. Obviously, the performance of numerous reforms in public service and the institutional mechanisms put in place for tackling ethical problems, though positive in general, has fallen short of expectations. This paper seeks to examine and analyze the present approach to combating corruption and promoting accountability in the Malaysian public service. In particular, it focuses on institutional mechanisms currently available and identifies and analyzes their constraints and limitations in keeping the public bureaucracy under surveillance and control.     

Globalization: From domination to resistance

Recent political reforms in the Gulf Arab countries have been variously understood as regime survival strategies, correlates of economic globalisation, and even the end result of US pressure to democratise. This paper examines the possible role played by the introduction of modern information and communication technologies (icts) in stimulating political liberalisation in the Gulf Arab states. Rather than attempting to quantify their democratising impact, this paper utilises the concept of agency, examining how the range of agents of ict production and diffusion in the region have sought to influence the actual impact upon political space. It concludes that modern icts have demonstrated the potential to expand the existing public sphere, and to create new opportunities for liberal political activity. However, the particular configuration of agency in the countries in question has meant that the state and its allies have retained a significant degree of control over the extent and nature of the political space, a process in which local society may have in some instances collaborated. Thus, while the introduction and diffusion of new icts may have contributed to the pressures which led to some of the political reforms in evidence in the Gulf Arab states, one cannot argue that they amount, at least as yet, to a sustained and effective attack on illiberal political structures. The first part of this paper surveys the existing body of literature in an effort to devise a framework for the subsequent study of two principal contemporary icts (satellite television and the internet) in the Gulf Arab states.     

Middlemen in the Chinese Welfare State: The Role of Philanthropists in Refugee Relief in Wartime Shanghai

This paper examines the impact of different models of public/private partnerships for refugee relief. Through case studies of different refugee relief programs in China, the paper shows that philanthropists are attractive but risky partners for state officials in welfare provision. Their cooperation can indeed expand access to welfare, improve state capacity, and enhance state/society relations. But because philanthropists can control significant resources and gain considerable social prestige, weak states can find it very difficult to control and contain them. In some circumstances, the relationship can turn competitive, and philanthropists can even threaten the state’s efforts to expand its capacity and build up its own legitimacy. The key to the balance of power between state officials and private philanthropists is control over the funding for the partnership.     

Entrepreneurship and Participation in Public Management Reforms at the Local Level

This article seeks to discuss who the policy entrepreneurs are and who participates in the policy-making process of public management reforms at the local level. In order to answer the research questions, a multi-unit and multi-case research study was carried out in three municipal governments: Barcelona, Boston and Turin. The subjects of the study were 15 innovations in management implemented between 1992 and 2007. The first conclusion is that politicians predominantly take the entrepreneurial role in introducing innovations in public management, regardless of the technicality of the innovation. As far as political participation is concerned, public management reforms are still dealt with as in-house matters, even when public managers want to be recognised as promoting the positive values of political participation.     

NEW MODES OF GOVERNANCE IN ITALY AND THE NETHERLANDS: THE CASE OF ACTIVATION POLICIES

This article discusses the growing importance of operational reforms in the context of welfare state transformation processes, and the role that principles of new governance play in shaping these reforms. It focuses specifically on one social policy area considered crucial in reforming welfare states: the provision of activation services that aim at increasing the employability and labour‐market participation of people dependent on benefits or social assistance. The article argues that besides the reforms of the programmatic aspects of social policies and social services (formal policy reforms), reforms of the way in which policies and services are organized, administered and delivered (operational policy reforms) have received increasing attention as a ’second strand’ of welfare state reforms. It illustrates this by analysing and comparing reforms of the provision of activation services in two European countries: Italy and The Netherlands. The article not only reveals the growing emphasis in both countries on operational policy reforms which are to an important degree inspired by principles of new governance, but also shows significant similarities and differences in their concrete manifestations, which could be interpreted as pointing out processes of ‘path‐dependent convergence’.