The Transformation of Soviet Industrial Relations and the Foundation of the Moldovan Dniester Republic

The debate about post-socialist internal conflict has overcome the ‘ethnic turn’ and increasingly focuses on actors. For the case of separatism in the Moldovan Dniester Valley, research has highlighted the crucial role of industrial factory directors. These managers mobilised their factories’ employees. To refine the knowledge of how collective conflict actors are formed, this article asks the question: what enabled directors to mobilise ‘their’ workers? The sources show that, on the one hand, the managers’ political power was rooted in typical Soviet enterprise structures; on the other, it was further strengthened by perestroika market reforms and the economic crisis entangled to them. These results suggest that separatist mobilisation and internal conflict were entangled to social transformation and functioned as a catalyst to the process of (re-)distribution of capital and power.     

COMPARING BUSH–CHENEY AND CLINTON–GORE PERFORMANCE MANAGEMENT STRATEGIES: ARE THEY MORE ALIKE THAN DIFFERENT?

Successful performance management strategies are intrinsically linked to the political environment in which public policy‐making occurs. Since the mid‐1990s, many governments have re‐examined how to simultaneously reduce costs, increase performance and achieve results. Public agencies are experimenting with performance measurement and management systems designed to meet public policy goals and respond to citizen demands. Various reform models have been proposed and public administrators now expend considerable time, effort and resources exchanging ‘best practices’, finding ‘best value’, and ‘rethinking’ government operations. Although equally important, less effort has been devoted to performance management (PM) within increasingly complex, ideologically charged and politicized decision‐making environments. Despite significant increases in productivity, more theoretical and empirical research is needed to assist public managers in applying private market‐based alternatives to public service delivery structures. This article compares the PM initiatives of the Clinton–Gore Administration in the United States, known as the National Performance Review (NPR), with President Bush‘s Presidential Management Agenda (PMA). Following the comparison, a theory‐based research agenda is proposed to determine which of many approaches best ‘fits’ the varied and often contradictory systems for delivering public services in a decentralized governance system.     

Generalists and specialists in executive politics: Why ambitious meta‐policies so often fail

This article contributes to the politics of policy‐making in executive government. It introduces the analytical distinction between generalists and specialists as antagonistic players in executive politics and develops the claim that policy specialists are in a structurally advantaged position to succeed in executive politics and to fend off attempts by generalists to influence policy choices through cross‐cutting reform measures. Contrary to traditional textbook public administration, we explain the views of generalists and specialists not through their training but their positions within an organization. We combine established approaches from public policy and organization theory to substantiate this claim and to define the dilemma that generalists face when developing government‐wide reform policies (‘meta‐policies’) as well as strategies to address this problem. The article suggests that the conceptual distinction between generalists and specialists allows for a more precise analysis of the challenges for policy‐making across government organizations than established approaches.     

Being Strategic in Partnership – Interpreting Local Knowledge of Modern Local Government

Broad and international literature exists on networked governance which has both described and informed recent transformations in local government. Reforms in the UK have led to the development of strategic partnerships to join up services and solve wicked issues. In Scotland, these are referred to as Community Planning Partnerships. Evidence from numerous studies has highlighted the partial nature of this transformation, particularly around community engagement, with some of the pioneers of this work now questioning earlier assumptions. This article presents an interpretive policy analysis of strategic partnership in Scotland to add three themes to this literature. First, to demonstrate the historical contingency of ‘joined-up government’; second, to explore the practices and meanings used by policy actors to understand ‘strategic’ and ‘partnerships’. Finally, the article problematises strategic partnership working, suggesting that in and of itself it creates effective barriers to community empowerment and even engagement.     

ELITE ETHNOGRAPHIES: POTENTIAL,PITFALLS AND PROSPECTS FOR GETTING ‘UP CLOSE AND PERSONAL’

This article celebrates Rod Rhodes' use of ethnography to study political elites ‘up close and personal’. Initially Rhodes' work is contextualized within the development of political ethnography more generally, before his ethnographies of ‘Everyday life in a Ministry’ are reviewed, illustrating the potential of ethnography to research policy‐making elites. This review highlights epistemological and ontological questions which link to criticism of Rhodes' work as taking an anti‐foundational stance. In looking at future prospects for ethnography in governance settings, this article argues that researchers building on Rhodes' scholarship can choose whether to use ethnography as a ‘method’ or an ‘interpretive methodology’. In concluding, the case is made for a ‘constructivist modern empiricism’ which utilizes the ethnographic method alongside other research methods as being most useful for public policy and administration scholarship aiming to be practically useful for understanding either the processes of public policy‐making or its impact.     

Unveiling patterns of contestation over Better Regulation reforms in the European Union

Regulatory reforms labelled ‘Better Regulation’ are a prominent item on the political agendas of most advanced democracies and the European Union. Governments adopt Better Regulation measures to strengthen their democratic legitimacy and increase their regulatory and economic effectiveness. Notwithstanding their rhetorical appeal, their design and implementation are susceptible to high levels of political contestation. We therefore ask: are there systematic differences in stakeholders’ demands for what Better Regulation should achieve? What explains these differences? We argue that conflict over Better Regulation is rooted in what stakeholders prefer as a regulatory system of governance. Stakeholders demand reforms that lead to one of the following three scenarios: deregulation, technocratic or participatory policy‐making. We examine stakeholders’ demands expressed in the EU. We find that national authorities responsible for coordinating Better Regulation and cross‐sectoral business organizations support deregulatory and technocratic reforms. Business and public interest organizations are equally supportive of strengthening participatory policy‐making.     

Context matters: A Bayesian analysis of how organizational environments shape the strategic management of sustainable development

Public administration scholars have argued the need for a ‘general theory’ linking strategic management to the context in which public organizations operate. Understanding the interplay between organizational contexts and strategic management responses to urban sprawl and greenhouse gas (GHG) emissions remains an underexplored avenue for empirical advancement of this goal. Using 2015 survey data, we employ a novel Bayesian item response theory (IRT) approach to test how land use policy comprehensiveness, organizational capacities, leadership turnover, and environmental complexities affect the strategic management of smart growth policy in local governments. We find that public organizations harness political, administrative, and community capacities in varied combinations to better achieve their policy objectives, but these influences may not be complementary. Also, policy comprehensiveness generally relates to more strategic activity, while municipal executive turnover offers opportunities and threats to some smart growth strategies. Implications of this research are discussed.     

Regulating lobbying through voluntary transparency clubs: The connoisseurs’ assessment. Evidence from the European Union

Regulating private actors’ participation in policy‐making is key to democratic governance. Across political systems, targeted transparency is used to regulate lobbying activities. We examine the extent to which primary regulatory targets (organizations with frequent access to policy‐makers) support the architecture of lobbying regulation regimes set up as voluntary transparency clubs. Our empirical testing ground is the European Union. We conceptualize the EU Transparency Register as a Voluntary Transparency Club, elaborate on its club goods, and derive a set of theoretical expectations about its members’ evaluations of the club's transparency standards, membership size, and monitoring and enforcement mechanisms. We find significant differences between members’ and non‐members’ assessment regarding the regulatory performance of this transparency club. Members with frequent access to executive policy‐makers criticize the club's transparency standards and do not consider the Register a useful regulatory instrument. Yet, they support expanding its regulatory remit and increasing the club membership.     

HABERMAS’ MODELS OF DECISIONISM,TECHNOCRACY AND PRAGMATISM IN TIMES OF GOVERNANCE: THE RELATIONSHIP OF PUBLIC ADMINISTRATION,POLITICS AND SCIENCE IN THE ALCOHOL PREVENTION POLICIES OF THE SWISS MEMBER STATES

This article assesses the effects different constellations of science, administration and the political sphere display on the policy process in the field of alcohol prevention policy in the Swiss member states. First, it is argued that Habermas’ models of Decisionism, Technocracy, and Pragmatism can be interpreted as distinct modes of governance that take place in today’s policy‐making and implementation. Second, as for the effects of these different constellations of science, administration and politics, the findings from a written survey of the Swiss cantons reported here imply that a broad and adequate policy design is found in cantons with an alcohol prevention policy that is dominated by administrative actors. Output performance proves to be comparatively higher in cantons with a high influence either of scientific actors or of political actors. In an overall comparison, a combined model of administrative dominance with strong affiliation to the scientific community is shown to prevail against the other models considered.     

Implementing Privatization Policies in ‘Next Steps’ Agencies

This article examines the implementation of privatization policies in two ‘Next Steps’ agencies. This is discussed with reference to the broader theoretical and empirical questions of how do institutions change and when are political actors constrained in implementing their policy choices. Cortell and Peterson’s framework for explaining institutional change, and the concept of intra-state policy networks are used to analyse the cases. The differential outcomes identified illustrate how constraints operate and how these may be overcome by strategic actors to produce change. Constraints in these cases arose from fragmentation and dependence in central government, from differing institutionalized beliefs and from the development of intra-state networks between the departments and agencies. The paper concludes by suggesting that the type of intra-state networks created through agencification can be seen to have an effect on policy outcomes and are worthy of more detailed research.     

POWER, STRATEGY AND GAMES: ECONOMIC REGULATION OF A PRIVATIZED UTILITY

This article rejects conventional 'rational actor' models of economic regulation in favour of a focus on processes of resource exchange and dependence. Using a case-study of Yorkshire Water it identifies the membership and structure of the regulatory arena, the resources available to regulatory actors, the 'rules of the game', and the strategies adopted by regulator and regulated. It highlights the structurally privileged position of investors in water regulation and concludes that decision-making excludes customer interests; decisions are made by professional actors on the basis of co-operation and consensus; the regulator is relatively weak and depends on companies compliance to maintain its own legitimacy; and large companies have a great range of strategic options in pursuit of regulatory advantage.     

THE DIFFICULT TRANSFORMATION OF STATE AND PUBLIC ADMINISTRATION IN PORTUGAL. EUROPEANIZATION AND THE PERSISTENCE OF NEO‐PATRIMONIALISM

Portugal has been characterized by a late discontinuous democratization process. This contribution discusses the case of state and public administration reform in Portugal by using approaches from democratization, modernization and Europeanization theories. In order to understand the Portuguese case, the concept of ‘neo‐patrimonialism’ is used. We characterize Portuguese public administration as still having ‘neo‐patrimonial’ features, and therefore is still in transition from old closed‐minded practices such as particularistic decision making or clientelistic relationships to new open‐minded ones. The ‘new’ governance agenda combines new public management instruments and a growing flexibilization of public administration towards networks with non‐statal actors and has certainly led to some improvement in the quality of the services associated with public administration. Although is still too early to assess, top‐down and horizontal Europeanization processes, particularly since the late 1990s, may have contributed to a more reflexive approach in moving towards a more endogenous strategic vision based on the needs of the Portuguese state and public administration.     

The Syrian wars of words: international and local instrumentalisations of the war on terror

Abstract

This article presents a study of the ‘wars of words’ among selected parties involved in the Syrian conflict. Based on a combination of content analysis and critical discourse analysis (CDA), it examines actors’ discourses within the United Nations Security Council (2011–2015), the global arena of confrontation and international legitimisation of armed actions. Here, it investigates their instrumentalisation of the word ‘terrorism’ and the war on terror narrative, and it explores the dynamics of discursive (de)legitimisation of the use of violence in Syria. The article shows how parties instrumentalised this narrative to criminalise their enemies while legitimising their own violent actions. By doing this, the paper also offers a broader reflection on the global narrative on terrorism, and its different reception and instrumentalisation by core and peripheral actors.     

‘Fragile States’: introducing a political concept

The special issue ‘Fragile States: A Political Concept’ investigates the emergence, dissemination and reception of the notion of ‘state fragility’. It analyses the process of conceptualisation, examining how the ‘fragile states’ concept was framed by policy makers to describe reality in accordance with their priorities in the fields of development and security. The contributors to the issue investigate the instrumental use of the ‘state fragility’ label in the legitimisation of Western policy interventions in countries facing violence and profound poverty. They also emphasise the agency of actors ‘on the receiving end’, describing how the elites and governments in so-called ‘fragile states’ have incorporated and reinterpreted the concept to fit their own political agendas. A first set of articles examines the role played by the World Bank, the oecd, the European Union and the g7+ coalition of ‘fragile states’ in the transnational diffusion of the concept, which is understood as a critical element in the new discourse on international aid and security. A second set of papers employs three case studies (Sudan, Indonesia and Uganda) to explore the processes of appropriation, reinterpretation and the strategic use of the ‘fragile state’ concept.     

The Relationship Between Civil Servants and Politicians in a Post‐Communist Country: A Case of Slovenia

In modern democracies, civil servants have outgrown their classic role as implementors of the orders given by politicians as their masters. They now play an increasingly important role in the exercising of authority – a role which depends to a great degree on politicians themselves. Based on classical politico‐administrative divisions, the main hypothesis of this paper is to claim that, in the case of the post‐communist country of Slovenia, politicians are in charge of policy‐making and possess a dominant role over high‐ranking civil servants, who are mere implementors of policy. To verify this hypothesis, we use several mutually complementary methods and techniques, among them detailed empirical research. We find that the relationship between members of Slovenia's administrative and political elite does show competitive traits, but the conflict between the two groups is not such that would lead to a win‐lose situation. Both high‐ranking civil servants and politicians do in fact have a role as important and irreplaceable actors in the policy‐making process.     

Conflict reconsidered: The boomerang effect of depoliticization in the policy process

This article argues that the efforts of policy‐makers to avoid conflict in the short run can be counterproductive in the long run. Not only may policy‐makers fail to reap the benefits of conflicts when they try to steer clear, but conflict may actually increase rather than diminish. We study conflict through the conceptual lens of (de)politicization in the lengthy and highly contested policy‐making process over the multibillion‐euro ‘Oosterweelconnection’ highway in Antwerp (Belgium). An in‐depth media analysis of 739 articles is combined with data from 32 narrative interviews. We conclude that efforts to end public debate through depoliticization can have a boomerang effect, in which conflict disappears only temporarily, and that these efforts can ultimately increase conflict while wasting engagement and creativity. More attention to the productive aspects of conflict is needed in public administration literature and practice.     

The dilemmas of market socialism: Capital market reform in China ‐ part II: Shares

This two‐part article analyses the attempts to reform the socialist financial system in China by diversifying financial assets and introducing capital markets. The approach used is that of political economy, in the sense of elucidating the interplay between political and economic interests, actors and issues in the reform process.

Part I discusses the issue of bonds by governments and enterprises. Although the reform era has seen gradual progress towards something resembling a bond ‘market’ in terms of a diversification of bond types and growing competition between bond issues, there is no evidence that this has improved allocative efficiency in the economy. Rather, bonds have functioned as one instrument in a complex struggle for resources between political, institutional and economic actors in the context of a continuing ‘shortage economy’. This competitive system falls far short of a true ‘market'; rather it embodies powerful systemic factors reflecting the basic structural and institutional features of a semi‐reformed socialist economy.

One of these systemic factors is the institution of social ownership of the means of production which has been called into question by the emergence of shares and share markets, a process we discuss in Part II. Share issues have in the event been economically unimportant but politically important since they challenge the ideological and institutional underpinnings of a ‘socialist’ economy. The key to the future of this form of financial liberalisation depends not merely on further progress in complementary areas of economic reform policy, but also on a resolution of these fundamental political issues.     

THE REFORM OF FINANCIAL MANAGEMENT IN THE EUROPEAN COMMISSION: A PUBLIC MANAGEMENT POLICY CYCLE CASE STUDY

Since the mid‐1990s during the Santer, Prodi, and Barroso presidencies, the European Commission has experienced several public management policy cycles. Included on the Barroso Commission's (2004–2008) policy agenda was the reform of internal financial control, prompted by significant irregularities in budget execution signalled repeatedly by the European Court of Auditors (ECA) in its annual Declaration of Assurance (DAS) and Annual Reports. This led to a declared Barroso Commission strategic objective of achieving a ‘positive DAS' by 2009. The proposed solution was ‘integrated internal control’ based on an international reference point within the accounting and auditing professions. The result was a centrally co‐ordinated Commission project aiming to reform management and audit practices within both the Commission and EU member states. This article reports on the ‘positive DAS' and ‘integrated internal control’ policy cycle and explains its agenda‐setting, alternative‐specification, and decisional processes.     

The evolution of business – state interaction in Russia: From state capture to business capture?

This article discusses two basic strategies of Russian companies—isolation from, and close cooperation with the state. The author analyses several ways in which companies realise these strategies, drawing analogies with the ‘exit’ and ‘voice’ strategies suggested by A. Hirschman. It is shown that under the conditions of a weak state these strategies lead either to an expansion of the shadow economy or to ‘state capture’. Both the privatisation of the state and the lack of its privatisation result in budget crises as well as drastic social and political shocks, leading to calls for a ‘strong hand’ in the business community itself. However, as there is little political competition and the mechanisms of democratic control are weak, state consolidation takes place as a bureaucratic consolidation accompanied by new opportunities for informal ‘business capture’ by the authorities. Nevertheless, the high degree of openness of the economy and the remaining heterogeneity of political actors provide business with a wide range of possible strategies of interaction with the state. This article explores how these strategies are becoming more formal and public compared to the 1990s. Strategies of isolation from the state now take place as legal strategies of internationalisation. Cooperation strategies, on the other hand, currently seem to be more efficient when switching from the traditional lobbying of private interests to more rational and collective actions aimed at providing the necessary conditions for sustainable economic development.     

Nagorny Karabakh conflict: prospects for conflict transformation

The article explores the current stalemate in the Nagorny Karabakh conflict, and perspectives for conflict transformation. As the conflict has remained dormant for more than 20 years, the political systems of the countries engaged in the conflict have adjusted to the conflict situation. The conflict is often used by the political elites in order to legitimize their power, consolidate support, marginalize opponents, and neutralize democratizing pressures. Since the status quo serves the interests of the authorities, the ruling regimes do not have strong incentives to seek conflict resolution. In these conditions, conflict transformation approaches are considered a necessary means to deal with the conflict. Given that political elites have little incentive to implement such transformation, civil society actors come increasingly to the fore. Only through multitrack initiatives supported by civil society actors, we argue, can conflict transformation practices advance and subsequently bring peace to the region.