MINISTERIAL ADVISERS,POLITICIZATION AND THE RETREAT FROM WESTMINSTER: THE CASE OF NEW ZEALAND

Political advisers are an established third element in a number of Westminster‐styled jurisdictions, as they are in New Zealand’s institution of executive government. In this paper we report the initial findings of a research project focusing on the role and accountabilities of ministerial advisers in New Zealand. We locate these findings in the context of a growing body of international and comparative research on the role and accountabilities of non civil‐ or public‐service advisers within political executives and comment on the extent to which the findings affirm or refute the view that the ‘third element’ constitutes a threat to the continued application of Westminster principles and practices in New Zealand’s system of government – once described as more Westminster than Westminster. In doing so, we highlight deficiencies in standard conceptions of politicization and argue that there is a need to more clearly differentiate between its procedural and substantive dimensions.     

‘LEADERISM’: AN EVOLUTION OF MANAGERIALISM IN UK PUBLIC SERVICE REFORM

This paper argues that ‘leaderism’– as an emerging set of beliefs that frames and justifies certain innovatory changes in contemporary organizational and managerial practice – is a development of managerialism that has been utilized and applied within the policy discourse of public service reform in the UK. The paper suggests that ‘leaderism’ is an evolution of entrepreneurial and cultural management ideologies and practices. An analysis of the articulation of leaderism with public service reform in the UK is presented. The paper problematizes the construals of leadership contained within these texts and reflects on their promotion of leadership as a social and organizational technology. ‘Leaderism’ is argued to be a complementary set of discourses, metaphors and practices to those of managerialism, which is being utilized in support of the evolution of NPM and new public governance approaches in the re‐orientation of the public services towards the consumer‐citizen.     

EXPLAINING THE PRIVATIZATION BOOM: PUBLIC CHOICE VERSUS RADICAL APPROACHES

Public choice theories of bureaucracy, especially the budget maximization thesis, have been influential in stimulating the drive towards privatization in Britain and the USA. But these accounts are strangely silent about why changes in state agency practices have come about under'new right' governments. They apparently attribute the scope of change entirely to'virtuous' political direction overcoming previously inherent features of bureaucratic behaviour and democratic politics.
By contrast, a radical reconstruction of instrumental models of bureaucracy explains the privatization boom in terms of the primacy of bureau-shaping motivations in the welfare functions of policy-level bureaucrats. Privatization is seen as a development of earlier strategies (such as the separation of control and line agencies, the creation of'dual state' structures, and automation) by which the class interests of senior bureaucrats have been advanced at the expense of rank and file state workers and service recipients. An examination of divergences in the internal and social costs of public agency functions explains why legislators and policy-level bureaucrats (especially in control agencies) push ahead with the'inappropriate' privatization of public service delivery systems where overall social welfare is reduced.     

ENTREPRENEURIAL LEADERSHIP IN THE ENGLISH PUBLIC SECTOR: PARADOX OR POSSIBILITY?

Our study explores the possibility for the enactment of entrepreneurial leadership in the English public sector under the Labour government’s modernization agenda. To substantiate our analysis, we draw upon data gathered from leaders in three public sector arenas – the National Health Service, secondary schools, and further education (FE) colleges. Our study proposes a definition of public sector entrepreneurship that extends beyond existing literature. In essence, we contend that public sector entrepreneurship is characterized by the combination of three distinct agencies: ‘stakeholder’, ‘entrepreneurial’ and ‘political’. The public sector entrepreneur identifies market opportunities within the political landscape, optimizes the performance‐enhancing potential of innovation for the public sector organization, and carries stakeholders in a way that both permits risk and recognizes the stewardship of public sector resources.     

INDIVIDUALIZATION AND PUBLIC SECTOR LEADERSHIP

This is a conceptual paper whose aim is to relate the development of ‘individualization’ ( Beck and Beck‐Gernsheim 2002 ) to organizational leadership. It does this by examining individualization alongside the implicit assumption on which orthodox approaches to leadership are founded, namely that leadership is an individualized phenomenon. Despite the expanding literature on these topics, particularly that on leadership, these concepts have not been examined in relation to one another. This paper seeks to do this in two ways. Firstly, it highlights the increased attention given to leadership in the UK public sector, locating leadership as a continuation of public sector managerialism. Secondly, it discusses the development of the trend of individualization more broadly. The paper’s main discussion focuses on leadership as an individual activity and of the consequences of that approach. In particular, it argues that individualized leadership presents a restrictive perspective which does not allow for exploration of a broader range of leadership approaches, particularly that of distributed leadership, which have especial relevance for public sector organizations.     

Public administration,public leadership and the construction of public value in the age of the algorithm and ‘big data’

Public administration scholarship has to a significant degree neglected technological change. The age of the algorithm and ‘big data’ is throwing up new challenges for public leadership, which are already being confronted by public leaders in different jurisdictions. Algorithms may be perceived as presenting new kinds of ‘wicked problems’ for public authorities. The article offers a tentative overview of the kind of algorithmic challenges facing public leaders in an environment where the discursive context is shaped by corporate technology companies. Public value theory is assessed as an analytical framework to examine how public leaders are seeking to address the ethical and public value issues affecting governance and regulation, drawing on recent UK experience in particular. The article suggests that this is a fruitful area for future research.     

Place-Based Leadership and Public Service Innovation

This article discusses two matters that are becoming increasingly important in debates about local government: place-based leadership and public service innovation. The troubling international economic outlook means that many local authorities are focusing on ‘efficiency savings’ and the prevailing mantra in public policy circles is ‘do more with less’. This article questions this approach. It aims to contribute to what one chief executive described to us as ‘more with more’ thinking. This approach strives to release the community and business energies of a locality. If this can be achieved the total resources available to improve the local quality of life can be increased, even if state spending is shrinking. A conceptual framework for studying place-based leadership is presented. This distinguishes three, overlapping realms of leadership in any given locality – political leadership, managerial/professional leadership, and community and business leadership. It is argued that the areas of overlap between these realms can be viewed as innovation zones – spaces in which established approaches can be questioned and new trajectories developed. These zones can, however, also become conflict zones with little learning and exchange taking place. Place-based leadership can influence whether such political spaces are used to promote creative problem solving or whether they become arenas for dispute and friction between sectional perspectives. By drawing on a study of the current Digital+Green initiative in Bristol, UK, the article suggests that an imaginative approach to place-based leadership – one that accepts intelligent risk taking – offers potential for improving the local quality of life as well as strengthening local democracy.     

How can network leaders promote public value through soft metagovernance?

The aim of this article is to explore the opportunities and challenges of employing ‘soft’ metagovernance to promote public value in governance networks. Soft metagovernance can be defined as a form of relational leadership that is exercised through face‐to‐face contact. This involves making an emotional connection with people to exert influence through a collaborative endeavour, rather than employing bureaucratic authority. Drawing on a case study of a local social enterprise—The Bristol Pound—in the UK, this article examines how soft metagovernance can be used by non‐state actors as a form of leadership to create public value. Evidence reveals that relational forms of leadership are a powerful asset in helping leaders of networks to create public value. Moreover, if network leaders understand how soft metagovernance functions they can use it more purposefully to maximize public value creation and mitigate the risks of public value destruction in governance networks.     

PUBLIC ADMINISTRATION AS STORYTELLING

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APPRAISING PUBLIC VALUE: PAST,PRESENT AND FUTURES

Despite the increasing popularity of the concept of ‘public value’ within both academic and practice settings, there has to date been no formal review of the literature on its provenance, empirical basis, and application. This paper seeks to fill this gap. It provides a critical introduction to public value and its conceptual development before presenting the main elements of the published literature. Following this, a series of key areas of disagreement are discussed and implications for future research and practice put forward. The authors argue that if the espoused aspirations for the public value framework are to be realized, a concerted process of research, debate and application is required. Although some criticisms of public value are argued to be unwarranted, the authors acknowledge ongoing concerns over the apparent silence of public value on questions of power and heterogeneity, and the difficulties in empirically testing the framework's propositions.     

Administration and Society: Beyond Public Choice?

This paper involves an attempt at reconsidering public choice theory, with reference to its pertinence for public administration. The impetus for such reconsideration has been supplied by the claims of public choice theorists that their theory, as the economics of politics, is superior to its alternatives in political science and sociology. The Weberian theory of bureaucratic administration or bureaucracy has been a special target of public choice theorists on the grounds that it misconstrues bureaucrats as idealists in economic terms. The public choice solution is treating bureaucrats and other political subjects as rational utility optimizers, including profit-maximizers and rent-seekers. Public choice theorists claim that such a treatment has revolutionalized the theory of bureaucratic administration. The reconsideration does not provide prima facie support for these claims of public choice theorists.     

The Antisocial Police Personality: A View from the Inside

ABSTRACT

This paper presents the results of two surveys, conducted in 1993 and 1997, which inquired into the attitudes towards aspects of their immediate and external working environments of New Zealand's senior health officials. The surveys are in the tradition of a growing body of international research which seeks to categorize respondents in terms of their bureaucratic “type.” Where the 1993 survey produced baseline information, the 1997 exercise served as a follow-up. Accordingly, the paper compares various results and discusses shifts in attitudinal orientation and bureaucratic classification. Key findings are that, in 1997, there has been a growth in both the number of “technocrats,” respondents with an aversion to politics but a strong commitment to policy programmes, and in the number of “classical bureaucrats,” respondents, again, with a dislike of politics but, in contrast to technocrats, with a short-term focus and tendency to react to policy problems as they arise. It is concluded that, while restructuring of the New Zealand health sector continues, there is a need to nurture “political bureaucrats:” those who can operate in a politicized environment and who can plan ahead with the participation of the attentive public.     

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.     

Short notes on some books received

This article challenges the thesis that local‐level bureaucrats need be part of any ‘dominant coalition’ at the village level. Based on a case study of Egyptian agricultural officials, the paper argues that local bureaucrats may well be more useless than dominant in any political or economic sense. In rural areas in which local officials lack the resources (supplies, funds) to do their jobs, they may well be quite inconsequential. In such situations their position as ‘public servants’ may be appropriated by members of the rich peasantry, who have no particular need to work closely with resource‐poor local government staff.     

Maybe Wilson Was Right: Espoused Values and Their Relationship to Enacted Values

Public administration scholars have little understanding of the operation of values within public sector organizations. Because the institutional values literature suggests that behavior consistent with American values by public organizations and officials can make a difference in successful policy outcomes, this research focuses on identifying the espoused and enacted value perspectives for two sets of U. S. government officials, presidents and senior executives. Through a content analysis of agency mission statements and speeches of Presidents Bush, Clinton and Bush, a subject matter analysis of executive orders, and a survey of senior executives, the following information is identified: The three presidents espouse the same set of values (i.e., ethics, performance, and support) in their speeches, but enact only one common value (i.e., commitment) in their executive orders. Although not statistically significant, two (i.e., performance and ethics) of the three top values in the agency mission statements are consistent with the values of the presidents. Senior executive perceptions of the most important values (i.e., authority, reward, and support) differ from the presidents. This unexpected difference lends support to Woodrow Wilson’s politics/administration dichotomy in that senior executives focus on values that address policy implementation while presidents focus on values related to politics.     

PUBLIC PROCUREMENT,PUBLIC VALUE AND THE NORTHERN IRELAND UNEMPLOYMENT PILOT PROJECT

This paper analyses the regulatory, commercial and socio‐economic goals underlying UK public procurement policy, highlighting the conflicts inherent between them and arguing that there is an overemphasis on commercial goals. A critique of the market model leads to consideration of the utility of the ‘public value’ concept as a means of assessing the achievement of public procurement goals in a balanced way through a greater emphasis on public consultation and the impacts and outcomes of procurement. An analytical framework is proposed, based on public value, against which to assess the delivery of public procurement policies. The framework is used to analyse a pilot project conducted in Northern Ireland on increasing employment through public service and construction projects. The paper demonstrates the achievement of a range of procurement goals and values and concludes by calling both for further research into the validity of the concept of public value and more extensive application of the framework.     

PUBLIC VALUE CREATION BY CROSS‐SECTOR COLLABORATIONS: A FRAMEWORK AND CHALLENGES OF ASSESSMENT

This article proposes ways to assess the public value that cross‐sector collaborations produce. It introduces a framework featuring three dimensions of public value – democratic accountability, procedural legitimacy, and substantive outcomes – that reflect distinct priorities and concerns for public administration. Utilizing examples from research on a multi‐year cross‐sector collaboration in the transportation field, we illustrate the framework's application and identify techniques and challenges for assessing the collaborative creation of public value. The article concludes with questions and propositions to guide future research.     

Public Sector Growth: Comparing Politicians’ and Administrators’ Spending Preferences

The notion that appointed bureaucrats act as budget maximizers still stands strong within theories attempting to explain the growth in the size of the public sector. This paper reports the results of a case study that included local authority politicians and bureaucrats in 30 Norwegian municipalities and where differences in spending preferences was empirically investigated. Counter to the original theory, bureaucrats seem to be less expansive than their political counterparts. The most expansive were found to be members of political left‐wing parties, the more peripheral politicians and administrators, women, those with lower education and those working in the public sector. Nevertheless, there is some support given to a modified hypothesis that administrators have stronger preferences for ‘slack’ (that is, organizational slack in terms of spending more money on internal administration) than politicians. The data also strongly support the notion that within a specialized sector, both politicians and administrators have similar preferences for higher spending to their specific sector.     

LEADERSHIP IN PUBLIC SERVICES NETWORKS: ANTECEDENTS,PROCESS AND OUTCOME

In this article, the authors examine the implementation of policy aimed to promote the role of organizational networks and distributed leadership in the establishment and consolidation of public service reform. In theory, leadership and networks should complement each other, with the less hierarchical logic of the network allowing leadership of change, distributed among network members, rather than led from a single organizational apex, to flourish. In practice, as a consequence of inherent bureaucracy, power differentials between network participants, and a strong centralized performance management policy regime, a relatively parsimonious form of distributed leadership is enacted, with the networks tending towards ‘managed partnerships’.     

REFORMING PUBLIC SERVICES IN THE UK: BRINGING IN THE THIRD SECTOR

In the UK, the government continues its project to reform public services. Earlier projects have focused on the modernization of public sector organizations; in the latest round of reform, New Labour has focused on widening choice and the personalization of services. To this end, the government has been working with Third Sector (TS) organizations to expand their role in shaping, commissioning and delivering public services. The government’s vision is predicated on a normative assertion, that, unlike traditional public sector organizations, TS bodies create public value by being more innovative, are inspired by altruistic aims and values, and have greater commitment to their clients. This paper reviews recent policy and questions whether the government’s policy is flawed, contradictory and risks damaging the attributes of the TS admired by New Labour.