UNDERSTANDING LOCAL GOVERNANCE: INSTITUTIONAL FORMS OF COLLABORATION

The article discusses institutional forms of governance, understanding governance as hybrid forms of collaboration, involving government, market actors and/or civil society actors. By utilizing data from a study made of three Norwegian cities, six collaborative efforts are presented, and discussed in relation to analytical characteristics derived from both network theory and organizational theory. This analysis illustrates that these collaboration efforts can, on the one hand, be understood as something located between networks and organizations. On the other hand, one may argue they belong to none of the two theoretical categories, implying the need for new theories regarding collaboration. These observations are followed by some theoretical reflections about how democratic governments can influence collaborations, and ensure that the common will can actually become real.     

COMPETING TRADITIONS OF GOVERNANCE AND DILEMMAS OF ADMINISTRATIVE ACCOUNTABILITY: THE CASE OF DENMARK

This article offers a study of the changing role of the state in Denmark under the condition of the overall transformation from government to governance with particular emphasis on the corresponding transition from process accountability to performance accountability. It is argued that although new modes of governance have been introduced, and new interpretations of accountability have been proliferated, neither conventional modes of governance nor older interpretations of accountability disappear. Thus, what we see is a co-existence of competing traditions of governance and different and sometimes contradictory interpretations of administrative accountability, which create potential dilemmas and contradictions for the individual civil servant. Employing an interpretative approach to governance and public administration, the article analyses the constitution of competing traditions of governance and interpretations of accountability, and the way in which these competing traditions and interpretations lead to accountability dilemmas for the individual civil servant.     

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 GOVERNANCE NETWORKS EFFECTIVE AND DEMOCRATIC THROUGH METAGOVERNANCE

In response to the growing discrepancy between the steadily rising steering ambitions and the increasing fragmentation of social and political life, governance networks are mushrooming. Governance through the formation of networks composed of public and private actors might help solve wicked problems and enhance democratic participation in public policy-making, but it may also create conflicts and deadlocks and make public governance less transparent and accountable. In order to ensure that governance networks contribute to an effective and democratic governing of society, careful metagovernance by politicians, public managers and other relevant actors is necessary. In this paper, we discuss how to assess the effective performance and democratic quality of governance networks. We also describe how different metagovernance tools can be used in the pursuit of effective and democratic network governance. Finally, we argue that public metagovernors must develop their strategic and collaborative competences in order to become able to metagovern governance networks.     

DEMOCRACY AND GOVERNANCE NETWORKS: COMPATIBLE OR NOT?

This paper investigates the relationship between representative democracy and governance networks at a theoretical level. It does so by offering four conjectures and their implications for theory and practice. The incompatibility conjectures rests on the primacy of politics and sees governance networks as a threat. The complementarity conjecture presents governance networks as a means of enabling greater participation in the policy process and sensitivity in programme implementation. The transitional conjecture posits a wider evolution of governance forms towards network relationships. The instrumental conjecture views governance networks as a powerful means through which dominant interests can achieve their goals. Illustrative implications for theory and practice are identified, in relation to power in the policy process, the public interest, and the role of public managers. The heuristic potential of the conjectures is demonstrated through the identification of an outline research agenda.     

HOW POLICY NETWORKS CAN DAMAGE DEMOCRATIC HEALTH: A CASE STUDY IN THE GOVERNMENT OF GOVERNANCE

This article examines a detailed case study of implementation networks in England using the example of the relocation of the Norfolk and Norwich hospital, which became a flagship PFI project for the Labour government after 1997. The case study illustrates the workings of the new order of multi‐layered governance with both local and national networks from different policy areas interacting. However, it also sheds light on the governance debate and illustrates how in the world of new public management, powerful actors, or policy entrepreneurs, with their own agenda, still have the facility, by exercising power and authority, to shape and determine the policy outputs through implementation networks. It is argued that, whereas policy networks are normally portrayed as enriching and promoting pluralist democratic processes, implementation networks in multi‐layered government can also undermine democratic accountability. Four aspects here are pertinent: (1) the degree of central government power; (2) local elite domination; (3) the fragmentation of responsibility; and (4) the dynamics of decision making which facilitates the work of policy entrepreneurs. All these factors illustrate the importance of ‘the government of governance’ in the British state.     

A GENDER ANALYSIS OF WOMEN IN PUBLIC–PRIVATE–VOLUNTARY SECTOR ‘PARTNERSHIPS’

The nature of work and traditional notions of the public sector have been changing with increasing collaborative governance and delivery of public services among public, private and voluntary sector organizations. In the UK, governments at national and devolved levels of government have adopted collaborative governance for service delivery through various networks and partnerships. This article explores collaborative governance from a gender perspective, specifically the perceptions of women in public–private–voluntary sector partnerships. While previous research in this area has explored aspects of collaborative governance such as power, trust, accountability, decision‐making, performance, exchange of information and participation, there is very little research on women within these networks. The article therefore provides a gendered analysis, disaggregating survey data to better understand the dynamics, for women, of collaborative governance and partnerships among public, private and voluntary sector organizations.     

PERSUASION AS GOVERNANCE: A STATE‐CENTRIC RELATIONAL PERSPECTIVE

Debates about governance and the relationship between governance and government have focused upon markets, hierarchies and networks as principal modes of governance. In this paper we argue that persuasion constitutes a further and distinctive mode of governance, albeit one which interpenetrates other modes of governance. In order to assess the nature, limitations and scope of persuasion and the complex relationships between markets, hierarchies, networks on the one hand and persuasion on the other, we interpret persuasion through the prism of two theoretical perspectives on governance. We argue that the society‐centred perspective usefully draws our attention to the role played by non‐state actors in the exercise of governance through persuasion but that a state‐centric relational account can help us to better understand important facets of persuasion as a mode of governance.     

Forms of Communication between Large-scale Farms and Local Administrative Authorities in Russian Villages: About Benefactors and Sponsors

This article investigates the forms of communication emerging between local administrative authorities and large-scale agricultural enterprises with regard to public service provision in two Russian villages. Using a systems theory approach and conceptualising Soviet society as an organisational society, privatisation and local government reform may be observed as attempts to disentangle former collective farms and local authorities and adjust them to the logics of functional differentiation. Empirical evidence from a former kolkhoz and an agro-holding shows that both react to the contradiction between global transformation imperatives and local expectations, using a specific combination of formality and informality as a condition of their reproduction in the villages.     

Organizing Civil Society in Russia and China: A Comparative Approach

Despite their authoritarian tendencies, the current regimes in Russia and China have both actively promoted stronger civil societies. This article explores this apparent paradox for insights both into the meaning of civil society and into the nature of governance in these two regimes. It argues that the social organizations that make up civil society both inhabit and construct a public sphere where individuals assist in their own governance. Recognizing that administered societies cannot compete in a globalizing economy, these regimes look to social organizations to perform functions previously left to the state, but at the same time use similar repertoires of regulation, revenue control, and repression to ensure such organizations do not transgress acceptable boundaries. Still, different notions of state–society relations in the two countries have led to different patterns of social organizations in the two countries. In Russia, a sharp distinction between state and society has contributed to a government strategy that seeks to dominate the public sphere leaving little room for autonomous civic action. In China, by contrast, deeply embedded institutionalized accounts see state and society as overlapping spheres of activity, creating pyramid-like structures encompassing both state-based and more autonomous organizations, and allowing more room for negotiation between the two.     

DEMOCRACY AND GOVERNANCE IN PAKISTAN'S FRAGMENTED SOCIETY

This paper examines Pakistan's recent democratic experiment in the framework of governance defined as the process of exercising power in the pursuit of common goals. Legitimacy, institutions and performance constitute the process of governance. Legitimacy refers to the consent of the governed and the rule of law. Institutions include deliberately created legal frameworks, laws, legislatures, executives and judiciary as well as customs, values and norms that emerge through practice. Effective governance requires congruence between the formal and informal institutions. Performance refers to the accomplishment of common objectives and judicious use and allocation of public resources. Good governance assumes the existence of democratic institutions. Governance occurs in a context and environment that not only shapes the process but over time is shaped by governing practices. The civil society and the market institutions provide the large part of the environment.     

THE GOVERNANCE OF FINANCIAL REGULATORY REFORM: THE AUSTRALIAN EXPERIENCE

The dominant perspective in the literature linking governance, globalization and public policy argues that globalization undercuts state capacity, weakening a government's ability to effectively regulate its domestic affairs. This paper shows otherwise with special reference to the Australian experience in financial regulation. It challenges the conventional wisdom that the Australian state is weak and cannot adopt anticipatory industrial policies. This paper argues that the adoption of the ‘twin peaks' model of financial regulatory arrangements is an example of the existence of government‐led steering in Australia which can adopt a proactive approach to financial regulation by steering and coordinating policy networks. ‘Governance through hierarchy’ in the financial services industry may be a function of the government's political entrepreneurship; its skill in setting and implementing an agenda; and an ability to create new policy communities and networks.     

MANAGING NETWORKS IN THE PUBLIC SECTOR: A THEORETICAL STUDY OF MANAGEMENT STRATEGIES IN POLICY NETWORKS

Public policy usually develops in complex networks of public, quasi-public and private organizations. It is now generally accepted that these networks set limits to the governance capability of the administration. A good deal less is known about the opportunities which policy networks offer for tackling social and administrative problems. This article deals with the way network management enables government organizations to benefit from networks. Building on the theoretical concepts of‘networks’and‘games’, two forms of network management are identified: game management and network structuring. Four key aspects can be identified for both of these management forms: actors and their relations, resources, rules and perceptions. At the same time, criteria for the assessment and improvement of network management are examined. The article concludes with a consideration of the limits of network management.     

RECENT TRANSITION IN GOVERNANCE IN SOUTH ASIA: CONTEXTS,DIMENSIONS, AND IMPLICATIONS

There has been a paradigmatic shift in the mode of governance in capitalist nations, developing countries, and postcommunist states. Under the newly emerging neoliberal state, which has largely replaced other state formations, public governance has undergone significant transformation. In comparison with the earlier mode, the new mode of governance has the objective of narrow economic growth rather than overall development, the role to support rather than lead service delivery, the structure of managerial autonomy rather than accountability, and the standards based on business norms rather than public ethics. This mode of governance, which emerged in advanced industrial nations, has been extended to most developing countries, including those in South Asia. This paper explores the origins and trends of recent changes in governance in South Asian countries, and evaluates the critical implications of such changes for various dimensions of society in these countries.     

BRITISH GOVERNANCE IN TRANSITION: A CASE STUDY OF THE NORTHERN IRELAND CIVIL SERVICE

ABSTRACT

In comparisons of the internal governmental arrangements within states, the United Kingdom (UK) is ordinarily categorised as a unitary state conforming to the ‘Westminster model’. However, this article contends that the changing nature of British governance over the last two decades means that the UK is better viewed as a ‘union state’ that conforms more readily to a ‘differentiated polity model’. Nowhere is the reality of differentiation more clearly exemplif ied than in respect of the British civil service. To illustrate the extent of differentiation, the article presents a case study of the characteristics and trends in the civil service of Northern Ireland for, while the politics of the Province have received great attention, its system of public administr ation has been chronically under-reported. The article considers the changing structures, policy process and impact of public management reforms as well as the restoration of devolved government. Finally, it summarises how the evidence from Northern Ireland informs theoretical understanding as well as its implications for the rest of the UK and beyond.     

GOVERNANCE AND ECONOMIC DEVELOPMENT: CHANGES AND CHALLENGES

This paper examines the issue of governance in the process of economic development. The paper first provides a literature review on the various arguments regarding the role of government in promoting economic development and the major issues emphasized in recent government reform projects. The paper then focuses on three major policy changes and reforms that are related to the area of governance and economic development: (1) regulatory reform, (2) privatization policy, and (3) decentralization policy. The paper concludes with discussions about the continuing arguments about the role of government, the increasing importance of local governments, and the contribution of nongovernmental or nonprofit organizations in economic development.     

GOVERNANCE FROM THE BOTTOM UP: COMPLEXITY AND DIVERGENCE IN COMPARATIVE PERSPECTIVE

This symposium article examines how the threefold governance framework of the symposium actually works across multiple policy sectors and multiple politically systems. It undertakes a comparative survey of governance‐related developments across three policy sectors: environment, education/higher education and forests. To control for differentiation in political structures, the article studies the policy sectors with respect to three political systems Canada, England and Germany, taking into account the role of the European Union, the federal systems and international actors. This broad macro comparative focus enables the authors to make one of the first empirical efforts to assess the presence and sweep of governance arrangements across both policy sectors and states; and to assess the degree of convergence around particular governance practices.     

Traditions of Australian governance

Australia's traditions of governance tend to be pragmatic and to blend different ideologies. Its traditions are less dependent on political party ideologies, and more on competing conceptions of the significant problems and the way that they should be addressed. In this article we identify five principal traditions, namely: settler–state developmentalism; civilizing capitalism; the development of a social–liberal constitutional tradition; traditions of federalism; and the exclusiveness/ inclusiveness of the state and society. These traditions have been robust and have developed over time. We show how political actors operating from within this plurality of traditions have understood the public sector and how their understandings have led to changes in the way the public sector is structured.     

The third sector, user involvement and public service reform: a case study in the co-governance of health service provision

The ‘modernization’ of British public services seeks to broaden public sector governance networks, bringing the views of third sector organizations, the public and service users (among others) to the design, management and delivery of welfare. Building on previous analyses of the contradictions generated by these roles, this paper draws on longitudinal qualitative research to enunciate the challenges faced by one third-sector organization in facilitating service user influence in a UK National Health Service (NHS) pilot programme, alongside other roles in tension with this advocacy function. The analysis highlights limits in the extent to which lateral governance networks pluralize stakeholder involvement. The ‘framing’ of governance may mean that traditional concerns outweigh the views of new stakeholders such as the third sector and service users. Rather than prioritizing wider stakeholders' views in the design and delivery of public services, placing third sector organizations at the centre of governance networks may do more to co-opt these organizations in reproducing predominant priorities.