政府绩效视角下的行政管理体制改革战略反思——基于地方政府公务员的感知调查

改革开放以来,我国行政管理体制改革一直坚持以组织结构调整为主的模式.对于这一模式的影响,尤其对地方政府的影响,一直缺少科学层面的检验和理论层面的反思.本文选取政府绩效作为标杆,利用地方政府公务员的问卷调查数据,探索政府部门间关系和部门管理制度建设影响部门绩效的路径和程度,使用结构方程模型实证检验了行政管理体制改革战略在地方层面的有效性.结果表明,部门间关系作为政府结构的核心特征对于政府绩效并没有直接的影响作用,其影响作用是通过部门制度建设和部门文化间接发挥的;部门制度建设对政府绩效的整体影响要大于部门间关系.因此,在今后的改革中应该给予管理制度层面的改革更多的重视,通过局部的、具体制度的改革为整体的、基本制度的变革创造条件.同时,还应在改革过程中维护政府组织文化的凝聚力和激励性.     

Interpreting Administrative Change: Bureaucratic Self‐Interest and Institutional Inheritance in Government

Between 1946 and 1995, Danish central government had been subject to numerous reorganization initiatives. Based on the assumption of self‐interest motivated and risk‐averse bureaucrats, these initiatives are analyzed in a long‐term historical perspective. It is argued that civil servants both feel a strong incentive to and have good chances of defending the existing organization. This creates a historical bias in favor of whatever organizations were created in the past. Still, the mutual dependence between political executives and their civil servants opens up for bargaining dynamics allowing for mostly incremental change. While ideology has been unimportant in the development of central government organization, broadly shared ideas about reform may account for some instances of radical reform, consistently opposed by Danish civil servants.     

Responding to the New Europe and the Crisis: The Adaptation of Sub-national Governments' Strategies and its Effects on Inter-governmental Relations in Spain

This article analyses the evolution of the institutional setting that the Spanish multi-level system provides for regional European Union (EU) adaptation, and the effects that recent developments of the EU (the Eastern enlargement, the Treaty reform process and the Euro-zone crisis) have had on the more or less pro-European positions and adaptive strategies of Spanish regions and on inter-governmental arrangements. It thus describes the increasing institutionalization of regional participation and EU policy coordination, both at the domestic and supra-national level, and the evolution of regional strategies, looking at its effects both on the degree of vertical and horizontal coordination, and the actual relative power and discretion of both levels of government. It argues that regional strategies have increasingly become more defensive and less pro-European and that increasing participation in European matters seemed to have favoured multi-lateralism and increased coordination without having produced further centralization until the recent crisis and associated budget consolidation targets induced new coordination requirements and a centralization of power towards the central government and EU authorities. This has, as a side-effect, reinforced some centrifugal tendencies of the system and therefore may affect the operation of IGR.     

Constitutional,legal and political problems of local government in Nigeria

The new Nigerian local government system was clearly intended by its creators to be a representative and democractic system of devolution. The speed with which elected councils have been dissolved and replaced by caretaker committees and state appointees contrasts strangely with the constitutional provision that there should be a system of local government by democratically elected local councils. The constitutionality of dissolution has been confused with the constitutionality of further local government reform. Dissolution should be seen as an emergency measure to be used rarely in cases of proven maladministration by a local government. Further reform and reorganization of a state's system of local government should be regarded as a legitimate power of the state legislature. The role given by the Constitution to local government should not be interpreted as entrenching the system. Constitutional amendment is not required should further reform be necessary.     

State Reform in Turkey: Reasons, Needs and Strategies

The state structure in Turkey including all its branches of government (executive, legislative and judicial) at both the national and local levels has been shown to be ineffective, even irrelevant, to the ingrained demographic, social, economic and political exigencies of the country. One of the main reasons behind this is the collapse of public finance. Conventional rhetoric limiting solutions to administrative reform fails to provide a sufficiently broad enough context within which public sector reform in Turkey can be discussed. Turkey's determination to become a full member of the EU also necessitates a comprehensive and radical overhaul of the Turkish public sector with respect to efficiency and productivity. Five main strategies are proposed to assist Turkey in overcoming its state governance predicament: initiating and carrying out a state-wide reform by employing modern principles of public management; understanding and solving the problem of internal and external debts; enhancing the conditions of governance; reintroduc-ing and strengthening the principle of meritocracy in public sector and cooperating more with the EU.     

Administrative reorganization as a signal: Bounded rationality,agency merger,and salience of policy issues

Although administrative reorganization has been a major political instrument in many democracies, there has been limited research on its effects. Aiming to address this gap, this study examines the reorganization of Korean government ministries, specifically, the impact of reorganization in the form of a merger of ministries performing interrelated but dissimilar functions. Examining the salience of policy issues expressed in official government press releases during the 12‐year period from 2001 to 2012, we found that administrative reorganization in the form of a merger has a significant impact on the relative salience of government policy agendas. Specifically, the interrupted time series estimates indicate that the salience of science and technology policy issues (in relation to education policy issues) decreased by approximately 12% to 17% following the dissolution of the Ministry of Science and Technology. We explain this finding based on the bounded rationality view of bureaucratic information processing.     

The Durability of EU Civil Service Policy in Central and Eastern Europe after Accession

This article examines the post‐accession durability of EU civil service policy in Central and Eastern Europe (CEECs). Civil service professionalization was a condition for EU membership but the European Commission has no particular sanctions available if CEECs reverse pre‐accession reforms after gaining membership. Comparing eight CEECs that joined the EU in 2004, the article finds that post‐accession civil service developments are characterized by great diversity. The three Baltic States continued civil service reforms, while Slovakia, the Czech Republic, Poland, and Slovenia are classified as cases of post‐accession reform reversal. The post‐accession pathway of Hungary is identified as a case of reform reorientation. The diversity in post‐accession pathways was almost exclusively the result of domestic political constellations, in particular, patterns of government alternation after accession. There were hardly any factors that could have locked in the level of professionalization that had been reached at the time of accession.     

Balancing Democratic Civilian Control with Effectiveness of Intelligence in Romania: Lessons Learned and Best/Worst Practices Before and After NATO and EU Integration

This article reviews Romania's intelligence reform after 1989. Specifically, it looks at intelligence reform before and after Romania's accession to the North Atlantic Treaty Organization (NATO) in 2004, and the European Union (EU) in 2007. It finds that Romania has made considerable progress in intelligence reform. That is because Romania, which expressed its desire and commitment to join NATO/EU after 1989, has worked hard to comply with these organizations’ membership demands (including intelligence reform). After NATO/EU integration (when demands on balancing control and effectiveness virtually vanished), despite continued openness efforts made by agencies, control/oversight diluted. Thus, post-NATO/EU, while effectiveness is being strengthened, democratic control lessens.     

Policy Entrepreneurship,Policy Opportunism,and EU Conditionality: The AKP and TÜSİAD Experience in Turkey

This article examines the relationship between European Union (EU) conditionality for membership and policy entrepreneurship in a candidate country. In Turkey, EU conditionality opened a window of opportunity for policy reform by lowering the political costs of controversial reforms. The study demonstrates that the Justice and Development Party (AKP) and the Turkish Industrialists' and Businessmen's Association (TÜS?AD) responded to a window of opportunity by advocating a series of reforms that represented a bold challenge to the traditionally reform‐averse and Euro‐skeptic political culture in Turkey. The study finds a difference in the duration of both actors' commitment to reforms. To explain this difference, we distinguish between policy entrepreneurs, who are actors with a long time horizon, and policy opportunists, who are actors with a short time horizon. The policy implication of this finding is that the European Commission's expectations of the AKP government to deliver the necessary reforms may be too optimistic.     

Reinventing government: The Israeli exception: The case of political cultures and public policy-making

In recent years, the institutionalization of norms of policy accountability and planning in the Israeli public administration has preoccupied a series of committees on public service reform and government reorganization. This paper discusses the background of the Israeli policy-making culture and its effect on recommendations for systematic policy planning, analysis, evaluation, and accountability. This account is interesting, partly, because it traces a reaction to institutional arrangements that are in many ways similar to those promoted by advocates of the New Public Management. Ironically, however, it explains the efforts to replace them with something more like traditional bureaucratic arrangements.     

Local Government in Tasmania: Reform and Restructuring

Tasmania has a long history of failed attempts at restructuring local government boundaries yet managed a major reform process of 'modernisation' between 1990 and 1993 that incorporated major changes to council operations together with a restructuring of boundaries and a reduction from 46 to 29 councils. This process can be compared with a recent attempt to reduce further the number of local governments. In April 1997 the Liberal Premier announced reforms ('Directions for Tasmania') that led to a further reduction in the number of councils. This process collapsed following legal challenges and the proroguing of parliament prior to the 1998 state election. The defeat of the Liberal government saw the abandonment of the proposed amalgamations and establishment of 'partnerships' between the new ALP state government and councils. This paper compares the 1990–93 and 1997–98 reform processes and evaluates the outcomes of the amalgamations in 1990–93. It argues that the success of amalgamation and reform in local government has been strongly influenced by the degree of local government involvement and support in the reform process, lessons that have wider application.     

This Time it's Different: Legitimacy and the Limits of Differentiation after Brexit

British political debate since the EU referendum has hinged on what type of Brexit to pursue: hard or soft. Yet, unlike in instances of treaty rejection, the EU made no counter offer to avoid a breakdown in relations that would follow the hardest of exits. This remarkable unity in not discounting the possibility of a hard Brexit demonstrates that UK withdrawal is very distinct from previous wrangles over EU reform. Drawing on the work of Kissinger, this article argues Brexit is a revolutionary act that denies the legitimacy of the EU order. Hence this process does not conform to other episodes of differentiation. When Westminster sought opt‐outs, it did not reject the core principles of integration. By not seeking to oppose a hard Brexit, Brussels has forced the UK government to find a new legitimising principle to govern EU–UK relations, transferring the burden of adjustment to London.     

How to Succeed in Reorganizing: The Case of the Norwegian Health Administration*

There has been a growing concern about administrative reform in many countries during the last 10–20 years. The central administrative apparatus has been restructured, partly as an instrument to fulfill collective, political goals. This study of the reorganization of the central health administration in N orway shows that political and administrative leaders increase their control through a planned reorganization. But such a comprehensive reform also creates problems in adjusting to new administrative roles.     

The politics of Artificial Intelligence regulation and governance reform in the European Union

This paper explores political drivers and policy process of the reform of the framework for Artificial Intelligence regulation and governance in the European Union (EU). Since 2017, the EU has been developing an integrated policy to tighten control and to ensure consumer protection and fundamental rights. This policy reform is theoretically interesting, raising the question of which conceptual approaches better explain it, and it is also empirically relevant, addressing the link between risk regulation and digital market integration in Europe. This paper explores the policy reform mainly by using two case study methods—process tracing and congruence procedure—using a variety of primary and secondary sources. It evaluates the analytical leverage of three theoretical frameworks and a set of derived testable hypotheses concerning the co-evolution of global economic competition, institutional structure, and policy preferences of domestic actors in shaping incremental approach to AI regulation in the EU. It is argued that all three are key drivers shaping the reform and explain the various stages of the policymaking process, namely problem definition, agenda-setting, and decision-making, as well as the main features of the outcome.

     

The Role of the European Union Budget in View of EU Enlargement

What is the role of the European Union (EU) budget in the upcoming EU enlargement? This article attempts to answer this question by focusing on the EU budgetary system before and after the enlargement. The analysis of the EU budget helps us understand the political and economic philosophy as well as the practical achievements of the European construction. The upcoming enlargement urges the elaboration of a new vision of Europe, its missions and democratic institutions, and the power sharing between the EU and its member states, with a consequent major reform of EU fiscal and budgetary discipline.     

UK Euroscepticism and the Brexit Referendum

This article shows that key to understanding the referendum outcome are factors such as a profoundly eurosceptic public, high levels of citizen uncertainty, divided mainstream political parties on the EU and lack of unity within the ‘Leave’ campaign. The Brexit referendum is more than just about domestic issues and government approval. Utilitarian concerns related to economic evaluations of EU integration coupled with support of or opposition to EU freedom of movement are very likely to influence vote choice. Those campaigns that focus on rational utilitarian arguments about the costs and benefits related to EU membership as a whole but also to EU freedom of movement are expected to swing voters.     

Ministerial Advisers and the Politics of Policy‐Making: Bureaucratic Permanence and Popular Control

The advent of ministerial advisers of the partisan variety – a third element interposing itself into Westminster's bilateral monopoly – has been acknowledged as a significant development in a number of jurisdictions. While there are commonalities across contexts, the New Zealand experience provides an opportunity to explore the extent to which the advent of ministerial advisers is consistent with rational choice accounts of relations between political and administrative actors in executive government. Public administration reform in New Zealand since the mid 1980s – and in particular machinery of government design – was quite explicitly informed by rational choice accounts, and normative Public Choice in particular. This article reflects on the role of ministerial advisers in the policy‐making process and, on the basis of assessments by a variety of political and policy actors, examines the extent to which the institutional and relational aspects of executive government are indeed consistent with rational choice accounts of the ‘politics of policy‐making’. The reader is offered a new perspective through which to view the advent, and the contribution of ministerial advisers to policy‐making in executive government.     

Rejecting refugees in illiberal Poland: The response from civil society

ABSTRACT

Since 2015, the European Union and its members have been responding to the increased arrivals of migrants and refugees at Europe’s southern shores. The states and societies of East and Central Europe are rarely discussed in this context. Even though their governments support the overall EU policy objectives in the area of freedom, security and justice, they vocally refused to participate in EU ‘burden sharing’. In this way these countries earned the label of uniquely xenophobic. This article seeks to complicate this perception by highlighting how civil society in Poland responded to the right-wing Polish government’s anti-refugee stance. Through the lens of Aronoff and Kubik’s concept of Legal Transparent Civil Society (LTCS) the author examine the evolving relationship between the ruling Law and Justice party and civil society organizations, proposing that activities for the benefit of refugees offer an insight into the transformation of civil society in the emerging illiberal political system.     

Managing development policy in Botswana: Implementing reforms for rapid change

In recent years, Botswana's international reputation as a nation with sound development management has been slightly tarnished and the country's government has become increasingly concerned about the declining performance of its development management machinery. This concern of the government has been translated into a series of reform measures designed to bring about rapid change. This article discusses and analyses those reform measures and their potential impact on the development management process in Botswana. It was determined that the reform measures were, for the most part, carefully crafted and are being purposefully implemented, showing the nation, once again, to be one with good governance.     

Privatisation and liberalisation in the utility sector: the case of telecommunications in the Czech and Slovak Republics

This article addresses the issue of telecommunications reform in the context of economic, political and technological changes. It reviews recent approaches to utilities and telecommunications management from the perspective of socio‐economic theories and with reference to European Union (EU) telecommunications policies. It then addresses telecommunications reform in the Czech and Slovak Republics as they prepare to join the EU. The emphasis is on the efficiency, pricing, quality and scope of services, as well as the social consequences of liberalisation. The indications are that, while liberalisation is favoured, certain basic government guarantees are still required in the ‘public interest’. Copyright © 2004 John Wiley & Sons, Ltd.