POLICY AS NARRATIVE: NEW LABOUR’S REFORM OF THE NATIONAL HEALTH SERVICE

Beginning with a brief review of the governance literature, a definition of governance in the National Health Service of England and Wales (NHS) is offered. This introduces an analysis of NHS reform, as presented in the recent policy literature. Using narrative theory, I critique this literature with reference to three key actors: the new organizational form of the ‘Foundation Trust’, NHS staff, and NHS patients. For each actor, a motif is identified and examined: ‘freedom’ for Foundation Trusts, ‘clinical governance’ for staff, and ‘choice’ for patients. Each of these motifs is instrumental in the narrative on NHS reform, whose main themes are emancipation, progress and duty. These are common to other political projects. This critique makes the rhetoric underpinning the recent policy literature more explicit, and underlines the created, contingent nature of New Labour’s account of NHS reform.     

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.     

Can we satisfactorily gauge the socio-political trends of our own age? Mark Bevir’s views on governance and changing democracy

Assessing the socio-political trends as they unfold is an art, and it needs to be approached from various angles. Bevir’s anti-foundationalist approach hinges upon the belief (not fact) that governance and networks have replaced government and hierarchies. His analysis is constructed around several strawmen (expert civil servants, street-level bureaucrats, judges, Keynesians, social welfare officials, and the wicked, modernist social sciences) rather than based in careful and balanced empirical evidence. To ‘cherry-pick’ some non-representative cases in support of an ideological perspective is academically unsatisfying.     

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.     

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.     

The global governance of informal economies: the International Labour Organization in East Africa

This article develops a Gramscian approach to the governance of ‘informal’ economies through a historical study of International Labour Organization (ILO) programmes in East Africa. Drawing on Gramsci’s conception of the ‘subaltern’, the article highlights the ways in which the articulation of ‘informality’ in policy documents is coloured by broader struggles over the political organisation of labour. The article develops this argument through two case studies. The first examines the World Employment Programme mission to Kenya in the 1970s that popularised the concept of ‘informal’ labour. The second is a contemporary programme on apprenticeships in the informal economy that originated in Tanzania.     

Local Government at the Nexus?

The modernisation of local government in the UK, pursued by Labour governments since 1997, has covered many, often conflicting elements. Councils have been encouraged to be both strategic ‘place shapers’ and also involved in the nurturing of democratic engagement. This latter theme of ‘democratic renewal’ has in itself contained paradoxical elements, but has been a consistent focus of attention. This debate around democratic renewal has also taken place in the context of a broader ‘rethinking’ of local governments’ role, in an era of partnerships, governance and new models of service delivery. Normatively and practically new justifications for local government have been sought. One such normative foundation has drawn on a range of theoretical perspectives to reimagine the place of local government in the democratic polity, seeing local authorities and local councilors as facilitators or nurturers of democratic health. In particular, broad theoretical developments in communicative and deliberative democracy, and also, more recently, on work based in ‘second generation’ governance theory, have been drawn upon to place local government at the nexus of state and civil society. This paper will examine the possibilities for such a role, from a normative standpoint, to argue that local government can have only limited success in this role, particularly in the context of New Labour's restructuring of the local state.     

Learning from defeat: reform,revolution and the problem of organization in the first New Left

Within the contemporary anti-capitalist movement a debate concerning the most effective forms taken by political organizations has opened. However, few of the contributions to this debate include an adequate historical component: indeed, while many have labelled the anti-capitalist movement a new left, few draw any lessons from the first British New Left of 1956–62. This article addresses this lacuna through an analysis of the debate over the question of political organization as it was articulated within the first British New Left. It is argued that the New Left’s critique of Leninism was underpinned by the political reformism that many of its leading members inherited from the Communist Party, and suggested that this left-reformist strategy informed its collapse in the early sixties. It concludes that contemporary radicals should learn the dangers associated with both a too close relationship to the Labour Party, and from the New Left’s failure to begin the process of building a political organization that could have begun to act as an alternative to Labour.     

Governance is where you find it

The concept of governance is used frequently and in a variety of different ways. This article discusses Mark Bevir’s use of an interpretative approach to governance and its implications for understanding better how we govern. This approach has particular relevance to democratic forms of governance, and to the use of deliberative and direct forms of democracy.     

BRINGING STRUCTURES BACK IN: THE ‘GOVERNANCE NARRATIVE’, THE ‘DECENTRED APPROACH’ AND ‘ASYMMETRICAL NETWORK GOVERNANCE’ IN THE EDUCATION AND SPORT POLICY COMMUNITIES

We reflect upon the ‘governance narrative’ as a means of conceptualizing recent developments in the British state. Recent public administration research has advocated a ‘decentred approach’ that would reject the linear narrative of a shift from hierarchical to network governance. We seek to build on ‘decentring’ theorists' critique of existing governance literature by offering case studies of the education and sport policy communities, arguing that the ‘new’ governance form is present in these sectors, but only as an element of a state strategy, the effect of which is to reduce autonomy and increase dependence on the centre among actors outside the core executive. We use the case studies to reflect back on the utility of the decentred approach and suggest that the range of questions it might tackle could be expanded by allowing for a greater role for structures and institutions in explanation, alongside the ideas, culture and belief of actors.     

Theory building: the debate between modernist and interpretive social science in the pursuit of democratic governance

Bevir’s Democratic Governance advances a new theory of governance. The theory rejects reliance on bureaucracy, market and community on the one hand, and strives to embrace a participatory and deliberative rationality to achieve democratic governance on the other. The fundamental question remains: in what ways can his theory ease the tension and bridge the gap between democracy and bureaucracy? If readers are interested in the development of a more coherent theory on public administration or prefer a more balanced perspective in the study of democratic governance, this book serves as a good start, though it may not be able to give you the ultimate answer.     

THE CENTRE STRIKES BACK: META‐GOVERNANCE,DELEGATION, AND THE CORE EXECUTIVE IN THE UNITED KINGDOM, 2010–14

A growing literature on ‘agencification’, ‘quangocratization’, and the ‘autonomization’ of the state has highlighted a coordination dilemma in contemporary public governance whereby governments rely on delegated governance but are frustrated by the lack of control that arises from such structures. In the run‐up to the 2010 General Election in the United Kingdom this coordination dilemma was prominent as the capacity of the Cabinet Office to exert control over arm's‐length bodies, either directly or indirectly, received intense criticism. This article presents the findings of the first detailed research project to examine the subsequent Coalition Government's approach to this dilemma. It argues that in relation to the governance of public bodies, the role and capacity of the Cabinet Office has been transformed. In mapping this development the article explores the implications of the centre striking back in the context of ‘post‐New Public Management’ reforms.     

Local Governance under the Coalition Government: Austerity,Localism and the ‘Big Society’

The Coalition between the Conservatives and Liberal Democrats, formally created on 11^th May 2010, has introduced a range of initiatives which affect local governance, from the announcement of a new Localism Bill through to the abolition of the Audit Commission and the arrival of the ‘Big Society’ agenda. This article reviews the key policy announcements of the Coalition's first year and analyses the underlying themes and trends which are emerging. It argues that the Coalition's reforms do show traces of an ideological commitment to localism and a new understanding of local self-government; there is an ideological agenda which has the potential to deliver a radically different form of local governance. However, the reform process is far from coherent and the potential for radical change is heavily constrained by: conflicts in Conservative thinking and the failure of the Liberal Democrats to assert their own ideology; the political expediency of budget cuts during an era of austerity and; the problems of implementing an apparently radical agenda after 13 years of New Labour.     

Understanding democratic governance: practical trends and theoretical puzzles

In line with the major philosophical (epistemological) transition in the social sciences from developmental historicism to modernist social science, there have been significant intellectual shifts in academic fields related to politics, state, and administration. More specifically, based on the modernist social science foundation, there has emerged the so-called ‘new governance’ encapsulating diverse neoliberal labels, theories, and models—including reinvention, new public management, networked governance, rational choice, and new institutionalism—which have serious adverse implications for democracy. These are some of the central arguments and claims made by Mark Bevir in his Democratic Governance. This article critically examines these claims and offers alternative viewpoints, especially regarding the controversial nexus between epistemology, theory, governance, and democracy.     

CHARACTERIZING NEW LABOUR: THE CASE OF THE CHILD TRUST FUND

The UK Child Trust Fund (CTF), which came into effect in January 2005, appears to be an exemplary instance of ‘asset‐based welfare’, of the redistribution of wealth rather than simply income. However, this article shows that over the course of its development, and in its final implementation, CTF policy became ever more focused on generating a ‘savings culture’ and enhancing financial literacy. In explaining this outcome, it is argued that it may be characteristic of New Labour for which, it is further argued, welfare policy should seek to push individual aspirations and outlooks in certain directions. The article takes an interpretive approach to the study of policy and politics, arguing that we should look carefully at the processes of argument and selection by which ‘objects’ of policy are specified. This can help us characterize the approach of varying administrations, their ‘governmentality’.     

Good governance or muddling through? Layoffs and employment reform in socialist China

China’s socialist employment system has undergone radical changes since the 1990s along with enterprise restructuring. Surplus workers have been laid off from state-owned enterprises in large numbers. China’s policy program for the management of layoffs in this process of enterprise restructuring has been evaluated as an example of ‘good practices in labor administration’. In this paper, we use original field data collected in Beijing, supplemented by additional information from recent Chinese studies, to assess this evaluation. We apply for this purpose the criteria often used by development agencies to evaluate governance systems, namely, accountability, transparency, consistency, participation, and information flow. Using these criteria as a yardstick, we argue that the Chinese experience in reforming their employment system through massive layoffs and re-employment is better characterized as a classic case of ‘muddling through’ rather than a shining example of ‘good governance’.     

WHAT IS THE PUBLIC VALUE OF GOVERNMENT ACTION? TOWARDS A (NEW) PRAGMATIC APPROACH TO VALUES QUESTIONS IN PUBLIC ENDEAVOURS

There has been a resurgence of interest in values in recent public administration research, based on two distinct arguments. For different reasons, neither approach is likely to secure a robust normative basis for public endeavours. These reasons are assessed, using an alternative body of theory rooted in contemporary social theory that we term, ‘new pragmatism’. New pragmatic ideas are deployed to critique the divorce of values from facts; the abstraction of values from concrete situations; the anthropocentric foundation to social choice; the poorly developed understanding of the process of governance, with its inherent pluralism; and the seeming reluctance to articulate principles of political discourse.     

Dishonest Government: Local Government Reorganisation,England 2006–2010

‘When I use a word’, Humpty-Dumpty said, in a rather scornful tone, ‘it means just what I choose it to mean – neither more nor less.’ (Lewis Carroll, Through the Looking Glass.)

Abstract

The local government reorganisation process introduced by the Labour government in England in the 2006–2010 period is characterised by a range of disturbing characteristics, in particular the misuse of the English language, the disjunctive between rhetoric and reality and a failure to distinguish between what is ‘lawful’ and what is proper. These claims are justified on the basis of an independent assessment of the government's claims regarding the costs and savings associated with a move to unitary authorities, a review of the court cases involved, which all involved serious criticism of the government's approach, and a critical review of the various contradictory statements made by government ministers during the course of the process. The evidence of the way the government handled the process has serious implications for the way in which public administration needs to be reformed.     

LIVING WITH THE CONTRADICTIONS OF MODERNIZATION? EMOTIONAL MANAGEMENT IN THE TEACHING PROFESSION

The state education system in the UK has undergone significant transformation such that New Labour’s modernization policy embodies aspects of the marketized system, inspired by New Right thinking, with a concern for placing schools at the centre of the social inclusion agenda. In this paper, we explore the impact of the modernized agenda on teachers’ work and identify the tensions and contradictions which emanate from these policies. The research centred on interviews with teachers and headteachers in four school case studies and explores the changing nature of the profession by focusing on teachers’ emotional management. It is evident that at a time when a large proportion of what teachers do is subject to scrutiny and audit, the emotional and less definable elements of teaching have also increased but remain relatively unrecognized. The findings suggest that issues of emotional management bring into sharp relief the contradictions evident in the modernized agenda.     

Tenacious diasporic homelessness in Moroccan Dutch writing: A. Benali's ‘May the Sun Shine Tomorrow’ and H. Bouazza's ‘The Crossing’ as a case of study

The highly estimated reception of Abdelkader Benali's debut Wedding by the Sea and Hafid Bouazza's Abdullah's Feet in the mid-1990s is the hyped celebration of multiculturality by the Dutch establishment. Because of attributed to stories' apparent embedment in the native background (Moroccan exotic village), the writers were hailed as successful models for the Dutch multicultural society that was based on the policy of integration (while retaining one's own cultural identity). This paper argues that those exotic proses are imbedded in the culture of routes rather than the rhetoric of roots which is centered on otherness and ethnicisation. The narrative structure of the debuts is undergirded by a discursive disruption of the centripetal moves toward unified autochthonous belonging. It is suggestive of the precariousness of the migrants' homes and their sense of origins. More importantly, A. Benali's ‘May the Sun Shine Tomorrow’ and H. Bouazza's ‘The Crossing’ are produced in a different context dominated by the New Right nationalist demand for sameness and critique of the pluralist discourse of correctness. Nevertheless, it is contended here that in displaying a persistent accent on migratory experience and full incorporation of foreigners in society as equals rather than identical, the short stories maintain the obstinate immersion of the writers in the poetics of homelessness. As such, Bouazza and Benali are claimed to enunciate a diasporic transnational position which resists social exclusion and sees dialogic cosmopolitanism as an adequate home for identities that are constantly on the process of emerging.