THE VALUE OF CHOICE IN PUBLIC POLICY

Conceptualizing and measuring choice is problematic both in theory and in practice. Measuring by counting the alternatives seems counter-intuitive as a smaller set of better or more diverse alternatives seems to provide more choice than one that is simply larger. However, concentrating upon better alternatives leads to choice being defined by welfare or utility which is also counter-intuitive. The implications of this paradox are considered in relation to examples drawn from the choice agenda in British social policy. Empirical difficulties in measuring the welfare gains through implementing greater choice at a time of other central-led policy initiatives such as targets are discussed, and the extant evidence discussed. Criteria for judging whether or not choice has been welfare-enhancing are suggested. It is argued that 'soft choice' where service providers provide information and explain different options is preferable to 'hard' choice of simplistic targets to increase choice by ticking target boxes.     

DOING BUSINESS IN THE TEMPLE? MANAGERS AND QUALITY ASSURANCE IN THE PUBLIC SERVICES

Quality' is now high on the policy agenda for many of our major public services. This article raises the question of what are the respective roles in securing quality of, on the one hand, professional service deliverers and, on the other, managers. It reviews a range of possible roles for managers and concludes that some of these are likely to be illegitimate and ineffective. Even the more appropriate roles will, however, often prove difficult to establish in practice. The article concludes with an examination of some possible key design features for successful relationships between managers and professional service deliverers. These are examined against the background of specific changes currently underway in the health care and education sectors.     

DEMOCRATIC SUBJECTIVITIES IN NETWORK GOVERNANCE: A Q METHODOLOGY STUDY OF ENGLISH AND DUTCH PUBLIC MANAGERS

Network forms of governance enable public managers to exercise considerable agency in shaping the institutions through which government interacts with citizens, civil society organizations and business. These network institutions configure democratic legitimacy and accountability in various ways, but little is known about how managers‐as‐designers think about democracy. This Q methodology study identifies five democratic subjectivities. Pragmatists have little concern for democracy. Realists regard networks as one of a number of arenas in which the politics is played out. Adaptors identify the potential for greater inclusiveness. Progressive Optimists think that network governance will fill the gap between the theory and practice of representative democracy, while Radical Optimists focus on its potential for enabling direct dialogue. Institutional design alone is not sufficient to enhance the democratic possibilities of governance networks. The choice of public manager is also salient. Adaptors or, preferably, Progressive or Radical Optimists should be selected for this role.     

MAKING WORK INVISIBLE: NEW PUBLIC MANAGEMENT AND OPERATIONAL WORK IN CRITICAL INFRASTRUCTURE SECTORS

Based on a study of reliability consequences of New Public Management (NPM) reforms in Norwegian critical infrastructure sectors, this article suggests that the discourse of work found in NPM renders essential aspects of operational work invisible—including practices that are known to be of importance for reliability. We identify two such organizationally ‘invisible’ characteristics of operational work: the ongoing situational coordination required for keeping a water supply system or an electricity grid running, and the aggregating operational history within which this happens. In the reorganized infrastructure sectors, these crucial aspects of operational work fit poorly in market oriented organizational models and control mechanisms. More generally, our analysis contributes to the understanding of how some types of work fit poorly within the discourse of work found in NPM.     

BRINGING THE POLITICS BACK IN: PUBLIC VALUE IN WESTMINSTER PARLIAMENTARY GOVERNMENT

We challenge the usefulness of the 'public value' approach in Westminster systems with their dominant hierarchies of control, strong roles for ministers, and tight authorizing regimes underpinned by disciplined two-party systems. We identify two key confusions: about public value as theory, and in defining who are 'public managers'. We identify five linked core assumptions in public value: the benign view of large-scale organizations; the primacy of management; the relevance of private sector experience; the downgrading of party politics; and public servants as platonic guardians. We identify two key dilemmas around the 'primacy of party politics' and the notion that public managers should play the role of platonic guardians deciding the public interest. We illustrate our argument with short case studies of: the David Kelly story from the UK; the 'children overboard' scandal in Australia; the 'mad cow disease' outbreak in the UK; the Yorkshire health authority's 'tea-parties', and the Cave Creek disaster in New Zealand.     

POLITICAL DISCOURSE AND PATH SHAPING IN PUBLIC POLICY: COMPARING PENSION REFORMS IN GREECE AND ITALY

Which factors account for successful policy reform and what role does discourse play in the process? This article examines this empirical puzzle with reference to the issue of Greek reform failure. A matched comparison with Italy in the area of pensions reveals the salience of path shaping and the use of political discourse in narrowing down reform options and facilitating change. The Greek case of limited public information, incoherent preparation of the problem, and inner‐circle decision‐making, is contrasted with the Italian government's information‐sharing and consensus‐building campaign for the establishment of a pro‐reformist discourse. Findings confirm the salience of institutional conditions but suggest that pure institutionalist accounts premised on rational choice thinking and the power of veto players should be complemented with more agency‐driven accounts of public policy.     

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.     

THE PUBLIC/PRIVATE SECTOR CLEAVAGE REVISITED: THE IMPACT OF GOVERNMENT EMPLOYMENT ON POLITICAL ATTITUDES AND BEHAVIOUR IN 11 WEST EUROPEAN COUNTRIES

This study explores a refined model of public/private sector cleavage voting. Assuming that market and work experiences are crucial for people to develop common political views, it investigates three contexts that shape government employees' willingness to vote as a single constituency: the branch of public sector production, the occupational status, and the type of service economy. Estimation results obtained from regressions on European Social Survey (ESS) data indicate that government employees in public health, education and service production rather than public administration utilize sector cleavage voting. Regardless of their actual occupational status, public health and education employees show persistently stronger attitudes in favour of expanding state responsibility. With respect to party choice, stronger signs of alignment along the sector cleavage are observed in Social Democratic service economies. In sum, the public/private sector cleavage continues to matter in a more complex way than a simple sector dichotomy would suggest.     

DECISION-MAKING IN CENTRAL AND LOCAL GOVERNMENT IN THE ABSENCE OF POLITICAL MAJORITY

A possible outcome of the next general election is that no party will have a majority in the House of Commons, a situation experienced only briefly in recent central government. In local government, by contrast, more than half the county councils in England and Wales and many district councils have no overall political majority. Some have been so for many years. This paper examines the style of decision-making in one such local authority, Cheshire County Council, in terms of the roles of politicians and officials and the relationship between them. Recognizing the constitutional differences between central and local government, it goes on to discuss how much of this experience would be relevant to central government in the event of no overall parliamentary majority. The paper argues that many of the working practices developed in local authorities would be valid in a central government context, though they would not necessarily take the same form. To avoid value judgments, the absence of overall majority, whether in a local authority or in parliament, is referred to simply as 'no-majority'.     

RAPID RURAL APPRAISAL: ITS USE AND VALUE FOR HEALTH PLANNERS AND MANAGERS

Rapid appraisals have proliferated in the field of health in the past decade because of their perceived promise of obtaining information for planning and managing programmes cheaply and quickly. This article examines one type of appraisal, Rapid Rural Appraisal ( rra ) in order to assess the contribution of this approach. The background to its development is described, highlighting the relevance to primary health care ( phc ). Its two essential characteristics – qualitative inquiry and community participation are noted. The approach is examined, the techniques described and case studies which have used the approach are presented. The strengths and weaknesses of the approach based on these examples are assessed. The article concludes that the rra approach should not be seen merely as an approach to get information for the planning process but rather as an integral part of the process itself. Its contribution is to improve the quality of the information planners obtain and to develop plans of action by using qualitative inquiry and involving the community in this process.     

THE IMPACT OF OPEN DATA IN THE UK: COMPLEX,UNPREDICTABLE, AND POLITICAL

This article examines the democratic impact of the UK coalition government's Transparency Agenda, focusing on the publication of all local government spending over £500 by councils in England. It looks at whether the new data have driven increased democratic accountability, public participation, and information transmission. The evidence suggests that the local government spending data have driven some accountability. However, rather than forging new ‘performance regimes’, creating ‘armchair auditors’, or bringing mass use and involvement, the publication creates a further element of political disruption. Assessment of the use and impact of the new spending data finds it is more complex, more unpredictable, and more political than the rhetoric around Open Data indicates. The danger is that the gap between aims and impact invites disappointment from supporters.     

PUBLIC MANAGEMENT IN POLITICAL INSTITUTIONS: EXPLAINING PERCEPTIONS OF WHITE HOUSE CHIEF OF STAFF INFLUENCE

The notion that public managers influence organizational performance is common in public administration research. However, less is known about why some managers are better at influencing organizational performance than others. Furthermore, relatively few studies have systematically examined managerial influence and scholars have yet to investigate either quantitatively or systematically managerial influence in the White House. Utilizing original survey data collected from former White House officials who served in the Reagan, George H.W. Bush, and Clinton administrations, this study applies empirical public management theory to examine for the first time the key determinants that shape perceptions of chief of staff managerial influence. The findings demonstrate how several core concepts in public management theory help explain the dynamics that drive perceptions of managerial influence, thereby providing a new contribution to the literature on public management.     

PUBLIC AND PRIVATE SECTOR MANAGERS OVER 20 YEARS: A TEST OF THE ‘CONVERGENCE THESIS’

This paper sets out to test the ‘convergence thesis’ in respect of managers in the public and private sectors in Britain. New Public Management (NPM) initiatives have had the objective of making managerial behaviour in public sector organizations more similar to that in the private sector. Based on unique national surveys undertaken in 1980, 1990 and 2000, using quite large random samples of fellows and members of the Chartered Management Institute (CMI), comparisons are made to investigate whether ‘convergence’ between public and private sector managers has actually occurred. The patterns are found to be complex and, although there are some signs of convergence, the two sectors continue to exhibit similarities, persistent differences and parallel movements evident in managerial attitudes, behaviour and experiences.     

THE DOG THAT DIDN'T BARK: HOW PUBLIC MANAGERS HANDLE ENVIRONMENTAL SHOCKS

Do negative budgetary shocks reduce performance in public organizations? If so, by how much and in terms of which criteria? Are public managers able to make internal management choices to limit or eliminate the effects of such shocks? These questions are investigated in a set of hundreds of organizations over an 8‐year period. For the most part, budgetary shocks of 10 per cent or more have only limited or no negative impacts on performance in the short term. The most salient policy objective and production for more disadvantaged clientele are especially insulated from shocks. Decisions about internal resource allocation and personnel management can be shown to protect core production while sacrificing more peripheral activities and capital investment. Questions that remain to be investigated include whether short‐term protection comes at the expense of some longer‐term losses, and—ironically—whether effective management under such circumstances weakens over time the political case for adequate budgets.     

RESIGNED BUT SATISFIED: THE NEGATIVE IMPACT OF PUBLIC SERVICE MOTIVATION AND RED TAPE ON WORK SATISFACTION

This article examines the relationship between red tape, Public Service Motivation (PSM) and a particular work outcome labelled ‘resigned satisfaction’. Using data from a national survey of over 3754 public servants working at the municipal level in Switzerland, this study shows the importance of looking more closely at the concept of work satisfaction and, furthermore, of thoroughly investigating the impact of the different PSM dimensions on work outcomes. Unsurprisingly, research findings show that red tape is the most important predictor of resignation. Nevertheless, when PSM dimensions are analysed separately, results demonstrate that ‘commitment to public interest/civic duty’ and, to a lesser extent, ‘attraction to policy‐making’ decrease resignation, whereas ‘compassion’ and ‘self‐sacrifice’ increase it. This study thus highlights some of the negative (or undesirable) effects of PSM that have not been previously addressed in PSM literature.     

DEMOCRATIC GOVERNANCE AND POLITICAL RATIONALITIES IN THE IMPLEMENTATION OF THE WATER FRAMEWORK DIRECTIVE IN THE NETHERLANDS

Multi‐level governance, network governance, and, more recently, experimentalist governance are important analytical frameworks through which to understand democratic governance in the EU. However, these analytical frameworks carry normative assumptions that build on functionalist roots and undervalue political dynamics. This can result in a lack of understanding of the challenges that democratic governance faces in practice. This article proposes the analysis of democratic governance from the perspective of multiple political rationalities to correct such assumptions. It analyses the implementation of the Water Framework Directive in the Netherlands as a paradigmatic case study by showing how governmental, instrumental, and deliberative rationalities are at work in each of the governance elements that it introduces. The article concludes by discussing the implications of a perspective of multiple political rationalities for the understanding and promotion of democratic governance in practice.     

ADAPTIVE AND MALADAPTIVE RESPONSES OF MANAGERS TO CHANGING ENVIRONMENTS: A STUDY OF AUSTRALIAN PUBLIC SECTOR SENIOR EXECUTIVES

This paper examines data collected from senior executives in two Australian government agencies to identify patterns of adaptive and maladaptive responses to change in public sector environments. The conceptual categories of passive maladaptive, active maladaptive and active adaptive responses are all supported by the interview data, with half of the executives expressing predominantly active adaptive responses to external change and uncertainty and half displaying various kinds of passive and active maladaptive responses. The implications of the findings for managers as agents of organizational learning and adaptation in public sector environments are discussed.