NEW MODES OF GOVERNANCE IN ITALY AND THE NETHERLANDS: THE CASE OF ACTIVATION POLICIES

This article discusses the growing importance of operational reforms in the context of welfare state transformation processes, and the role that principles of new governance play in shaping these reforms. It focuses specifically on one social policy area considered crucial in reforming welfare states: the provision of activation services that aim at increasing the employability and labour‐market participation of people dependent on benefits or social assistance. The article argues that besides the reforms of the programmatic aspects of social policies and social services (formal policy reforms), reforms of the way in which policies and services are organized, administered and delivered (operational policy reforms) have received increasing attention as a ’second strand’ of welfare state reforms. It illustrates this by analysing and comparing reforms of the provision of activation services in two European countries: Italy and The Netherlands. The article not only reveals the growing emphasis in both countries on operational policy reforms which are to an important degree inspired by principles of new governance, but also shows significant similarities and differences in their concrete manifestations, which could be interpreted as pointing out processes of ‘path‐dependent convergence’.     

REGULATION AS SOCIAL POLICY: HOME EVICTIONS AND REPOSSESSIONS IN THE UK AND SWEDEN

This article asks how the UK and Sweden regulate, prevent, or mitigate the consequences of mortgage‐related household eviction and repossession. Contrary to initial expectations, the findings show a growth and diversity in both regulation and social spending in the UK intended to address this social issue; something that has not occurred in Sweden. In the UK's liberal ‘regulatory welfare regime’, the aim is to prevent the eviction and repossession of vulnerable borrowers who have defaulted on their housing loan. In the Swedish social democratic ‘regulatory welfare regime’, effort focuses instead on minimizing the risk of default before it occurs rather than after the fact. These findings offer a more nuanced understanding of the relations between regulation and welfare more generally, demonstrating that regulation may be used as a form of social policy once the welfare state has failed, as a safety net of last resort.     

Rethinking the ‘open functional’ approach: Ideas,problem pressure and reform in the contemporary welfare state

Recognition that welfare states continue to change has fostered debate about the relationship between ideas and policy problems in driving governments towards reform. To move the debate forward, this article proposes a modification of Barbara Vis and Kees van Kersbergen's ‘open functional approach’. It first argues that while policy problems may provide ‘functional pressure’ to reform, this pressure is significant only in so far as inaction would risk electoral punishment. Reform pressure is hence best evaluated with reference to contemporaneous expert advice, public opinion data and the timing of elite and media attention. Second, it suggests that ideas may also lead parties to act as reform seekers, using policy problems as justification for cherished solutions or long‐held programmatic goals. The modified approach is demonstrated through comparative application to two case studies, attempts at pension reform in Sweden and the United States.     

THE QUASI-MARKET,THE ENTREPRENEUR AND THE EFFECTIVENESS OF THE NHS BUSINESS MANAGER

The recent changes in the UK National Health Service were heralded by the publication of the Griffiths report in 1983 which highlighted the need for a business-like’approach to management. The policy makers’generic strategy of the late 1980s and early 1990s centred around the concept of‘quasi-markets’. These were artificial internal markets encompassing the purchasers and providers of public services. Little research has been undertaken into this new phenomenon of the‘quasi-market’but entrepreneurship economic theory would suggest that for markets to be efficient would require a supply of alert and aware entrepreneurs. Within the restructured NHS, the mantle for entrepreneurial management seems to have been placed firmly on the shoulders of the newly created‘business managers’. A 1993 survey amongst NHS business managers in first and second wave trust hospitals in the Trent Regional Health Authority indicated that whilst business managers were knowledgable of what entrepreneurial activity is, they currently feel constrained in their new roles for a variety of reasons. The authors suggest that rational economic analysis is insufficient to explain this lack of innovatory endeavour. Instead policy makers’attention should be devoted to liberating health managers from their current constraints to encourage their entrepreneurial development.     

THE WELFARE STATE: A REGULATORY PERSPECTIVE

The role of regulation and the regulatory state in social policy, redistribution, and the reforms of the welfare state are increasingly important but often underestimated and misunderstood. These problems are evident in Majone's highly influential work where the regulatory state and the ‘positive’ state stand as two alternative monomorphic forms of state. This article offers a polymorphic alternative where the regulatory state may come to the rescue of the welfare state, allowing independent extension, retrenchment, and stagnation of welfare via social regulation. The article extends a regulatory governance perspective into the core of the welfare state, clarifies the relations between fiscal and regulatory instruments, and demonstrates that the boundaries of the regulatory state are wider than are usually understood. It turns our understanding of the welfare state on its head, highlighting first the less visible regulatory layer, and then the more visible layer of fiscal transfers.     

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.     

Solving the security–democracy dilemma: the US foreign policy in Tunisia post-9/11

Abstract

Scholarly consensus postulates a sharp contrast exists between liberal values and realist interests in US foreign policy in the Middle East and North Africa (MENA) region, which finds its expression in the ‘security–democracy’ dilemma.? This means the US rhetorical determination to abide by the values of a ‘liberal’ foreign policy is neutralised by the ‘realist’ priority of maintaining US strategic interests, which requires support for friendly authoritarian rulers. Scholarship tends to apply this reasoning indistinctly to the entire region, providing an encompassing framework of analysis for understanding US foreign policy, which is valid across time and space. This study challenges this theoretical assumption and argues that while the US might indeed have a comprehensive regional approach in the MENA, the resulting foreign policy follows country-based trajectories that respond to national specificities and the perceived implications for US strategic interests. Exploring US foreign policy in the MENA after 9/11, the article demonstrates that while the US emphasis on liberalism crumbled when faced with security issues, the US liberal approach to Tunisia unfolded more consistently. Although the US continued formal cooperation with Ben Ali’s regime, it empowered at the same time a coalition of democratic opponents, solving the security–democracy dilemma and positively influencing the Tunisian democratisation.     

THE ‘NEW PUBLIC GOVERNANCE’ AND EMPLOYABILITY SERVICES IN AN ERA OF CRISIS: CHALLENGES FOR THIRD SECTOR ORGANIZATIONS IN SCOTLAND

Third sector organizations (TSOs) have emerged as key players in the delivery of public services to assist jobless people to improve their employability and move from welfare to work. Drawing on in‐depth research with employability providers in Scotland, this article explores how TSOs have responded to the challenges of a rapidly changing public services environment. Specifically, we use the concept of the ‘New Public Governance’ to explore TSOs' relationships with UK, devolved and local government stakeholders. TSOs demonstrated a pragmatic approach to shaping their services to reflect the priorities of public funders, and identified some opportunities arising from the new emphasis on ‘localism’. However, the evidence suggests that opportunities for collaboration at times remained constrained by certain forms of ‘contractualism’ and top‐down performance management. Based on the evidence, lessons for future policy and practice are considered.     

Hungary and the European Union: The political implications of societal security promotion

Hungary's constitutional commitment to support kin-nationals beyond its borders (nation policy) has been a central feature of its post-1989 foreign policy and highlights a particularly important national security concern—the societal security of national identity, culture, language and tradition. This article examines Hungary's societal security concerns and the policy methods it utilises, including its EU membership and the promotion of minority rights at the European level, to help combat these concerns. It is suggested that Hungary has found it somewhat difficult to balance its societal security policy objective with internal economic demands on its welfare system and its external foreign policy objective to maintain good neighbourly relations. This article also notes that Hungary's attempts to Europeanise, or rather ‘EU-ise’, minority and ethnic rights issues as a means to enhance societal security for the Hungarian nation has certain political consequences for the EU. This suggests that societal security provision is an issue that cannot be overlooked when trying to understand the longer-term implications of EU eastern enlargement.     

THE PARTICIPATORY AND DEMOCRATIC POTENTIAL AND PRACTICE OF INTEREST GROUPS: BETWEEN SOLIDARITY AND REPRESENTATION

Embracing ‘groups’ as means to address democratic deficiencies invites scrutiny of their democratic practices. However, many groups lack internal democratic practices and offer few opportunities for affiliates to participate. Guided by an implicit ‘representation’ narrative of groups, the absence of internal democratic practices is interpreted as a sign of ‘failure’ or ‘deficiency’. Some scholars have entertained the idea of setting minimum standards of internal democracy as a prerequisite for policy access. This article scrutinizes this emerging consensus and its ‘representation’ narrative. Drawing upon the work of O’Neill (2001) and Pitkin (1967) , it is argued that groups can also be viewed through a lens of solidarity. This paper argues that the type of constituency a group advocates for can be used to calibrate expectations of internal democratic structures of accountability and authorization. The concepts of ‘representation’ and ‘solidarity’ are used to make sense of the (changeable) practices of a variety of groups.     

Czech regional development agencies in a shifting institutional landscape

In recent years regional development disparities in the Czech Republic have been increasing, regional policy and regionalisation have moved up the national political agenda, and considerable regional development resources have become available through EU Structural Funds. The Czech Republic now has more than 18 institutions that describe themselves as Regional Development Agencies (RDAs), with a wide range of policy and practical experience and, in the present climate, they should now be poised to take on a key regional development role. However, their function and position in regional development networks is continually plagued by uncertainty, and they are struggling to fulfil the ‘ideal’ of what an RDA is and what it should do. This article asks why this is the case and examines how domestic and EU policy agendas and actors have influenced the role and function of RDAs in the Czech Republic. Whilst theories such as ‘new regionalism’ suggest that RDAs can lead integrated, bottom-up regional development actions, it is questionable whether Czech RDAs have the capacity to adapt to the type of role that proponents of this approach expect.     

Reconstruction ‘From Below’: a new magic bullet or shooting from the hip?

This article examines an emerging approach, called ‘reconstruction from below’, and its growing body of practice. The article argues that interventions for post-war reconstruction increasingly espouse a commitment to be bottom-up and contextually relevant, to look beyond state institutions, and to provide space for local ownership. The article traces the emergence of this approach to six factors present in international policy. It then examines the growing body of practice in the domains of livelihoods, institution building and basic service provision. It concludes that this approach is not the magic bullet that agencies seem to expect. Reconstruction from below rests on many untested assumptions. Programmes formed pursuant to these notions are often poorly adapted to the challenges encountered and hampered by mistrust of the local institutions to which this approach rhetorically entrusts reconstruction. The large and growing body of evolving experience suggests that it is time to take stock and learn lessons about how reconstruction from below functions in practice.     

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.     

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.     

Know thy enemy: Hizbullah, ‘terrorism’ and the politics of perception

The labelling career of the Lebanese armed group and political party Hizbullah is an interesting case with which to investigate the epistemological consequences of the politics of naming. Having found itself since its inception in the mid-1980s on the receiving end of mainly US and Israeli policy makers' and analysts' scorn for being an archetypical terrorist organisation, Hizbullah has been surprisingly successful in achieving its stated aims and in enduring the verbal and military onslaught against it. Although it is not the intention here to reduce explanations for Hizbullah's durability to discursive politics, this article suggests that both the labelling of Hizbullah as terrorist and, conversely, its identification as a ‘lebanonised’ political force that is about to make its conversion into an unarmed political party are misleading and incapable of grasping this organisation's complexities. In fact, both ‘terrorist’ and ‘lebanonised’ labels produce a quality of knowledge inferior to that produced by Hizbullah's own conceptualisation of its enemies. But most importantly, the debate on Hizbullah's alleged terrorist nature has obscured several of its traits that many should register before passing judgement on it. Our analysis shows that the variety of institutions Hizbullah has been carefully elaborating and readapting over the past two decades in Lebanon operate today as a holistic and integrated network which produce sets of values and meanings embedded in an interrelated religious and political framework—that of the wilayat al-faqih. These meanings are disseminated on a daily basis among Shi'a constituencies through the party's institutionalised networks and serve to mobilise them into ‘the society of the Resistance’ (mujtamaa’ al-muqawama), which is the foundation of the hala al-islamiyya (Islamic sphere) in Lebanon. Accordingly, any prospect of Hizbullah's transformation away from armed ‘resistance’ should be firmly placed in an analysis of its hegemony among the Shi'a of Lebanon and of the tools it uses to acquire and sustain this status.     

Taiwan's Quest for Independence: Progress on the Margins for Recognition of Statehood

This article describes many substantive transformations in politics, national self-identification, and economy Taiwan has undergone over the last decade and offers an alternative approach to expediting de jure state status. The transformations speak to significant progress ‘on the margins’ for attaining international recognition. The disjuncture between liberal democracies clinging to an antiquated ‘One-China’ foreign policy approach and the realties of the situation is widening. An alternative avenue to state recognition acknowledges advancements on the margins that justify Taiwan's recognition by others. At the same time, however, Taiwan must hold self-proclamation in abeyance until the breadth of recognition it receives becomes an irresistible force with which the PRC must reckon. The recent transformations coupled with mainland China's growing force projection capability indicate the time is ripe and appropriate to recognize Taiwan's statehood. The United States would be remiss in its avowed commitment and leadership responsibilities for democratic enlargement by not recognizing Taiwan.     

Does public opinion matter in Ukraine? The case of foreign policy

The article critically surveys the impact of domestic public opinion on foreign policy in Ukraine by integrating it within theories of public opinion. Studies of public opinion in Ukraine have not given due weight to the unique characteristics of the Ukrainian ‘public’, which differs greatly from the Western public. Ukrainian society is passive, atomized and its power is ‘submerged’ relative to that of the state. The article argues that public opinion is of minimal importance in the area of foreign policy.     

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.     

Redefining Who’s ‘In’ and Who’s ‘Out’: Explaining Preferences for Redistribution in Bolivia

How does welfare state expansion reconfigure political coalitions? This paper challenges traditional accounts that pit social policy ‘insiders’, who univocally oppose policy expansion, against ‘outsiders’ who favour it. It argues that labour market vulnerability and partisan cues can play a critical role in shaping the preferences of both insiders and outsiders, and thus produce new pro-expansion coalitions. To test this claim, it employs historical analysis of key social insurance configurations in Bolivia over the last 30 years, as well as an original survey carried out in Bolivia following that nation’s 2007 extension of a noncontributory national minimum pension.     

NEW PUBLIC MANAGEMENT IN PUBLIC EDUCATION: A CATALYST FOR THE PROFESSIONALIZATION OF SWEDISH SCHOOL PRINCIPALS

New Public Management (NPM) is one of the most significant reforms in public welfare in recent times. Making individual civil servants more dependent on the directions of the local manager than on common professional standards, previous sociological research argues that NPM results in a ‘deprofessionalization’ of civil servants. Taking a somewhat different approach, recent public administration research indicates that NPM may, at the same time, enhance the professional status of welfare managers. By integrating the literature on the sociology of professions and public administration, this article develops a theoretical framework for understanding the influence of NPM using the example of a professional project for school principals in Sweden. Taking a process‐oriented methodological approach, the result shows that Swedish school principals gained increased support for their professional project by the introduction of NPM. The article argues that NPM can function as a catalyst for welfare managers' professional projects.