ADMINISTRATIVE THEORY IN THE 1980s: A VIEWPOINT

The last fifteen years or so saw a flourish and then the surprising collapse of implementation process theory and contingency theory. Despite the enormous popular (and international) impact of privatization in these years, there was oddly little British administrative research in that area, although other aspects of‘the Thatcherite Revolution’, especially‘the new public management’, cultural change, and the divestment of executive work by Whitehall departments, were well covered. Growth points were informational logic theory and institutional analysis, though British development of cultural theory was somewhat lacking. Emphasis which shifted from‘public administration’to‘public management’may shift again in the coming decade, to‘governance’.     

REVIEW ARTICLE: THEORY AND METHOD IN THE STUDY OF DELEGATION: THREE DOMINANT TRADITIONS

This article focuses on the theories and methods that have been developed and deployed by scholars in order to understand both the cause and effect of delegation within state systems. It identifies three dominant traditions in the study of delegation, each of which reflects a certain disciplinary lineage as well as great variety in terms of ontological, epistemological and methodological positions. The aim of this article is not to make any normative claims about the innate superiority of any particular approach but to instead argue in favour of a pluralistic methodology which is sensitive to the layered quality of knowledge. By way of forging a sense of a shared enemy or weakness, the article concludes by arguing that all three traditions are united by their relative failure to study the logic of delegation and the power of ideas. In essence, each of the traditions has focused too heavily on what could be termed the politics of delegation (that is, the secondary consequences of delegation) and has, as a result, failed to focus attention on the politicization of delegation in terms of locating the basic logic of delegation back within the contours of public contestation.     

REGIONAL GOVERNANCE IN ENGLAND: A CHANGING ROLE FOR THE GOVERNMENT’S REGIONAL OFFICES?

Debates about the appropriate territorial scales of government to meet the challenges of economic, political and social change have gained momentum in Western Europe in recent years. In the UK, political mobilization has transformed constitutional arrangements in Northern Ireland, Scotland and Wales. By contrast, in the English regions, a less radical approach has been adopted, but the outcome has been a strengthening of the institutions of regional governance. A key feature has been the enhanced responsibilities of the Government Offices for the Regions, which have been encouraged to build on their traditional administrative functions and adopt a more strategic role. This article explores the Offices’ contribution to regional and local governance. Our central argument is that although increasingly expected to act as a bridgehead between national and sub‐national government and a focus for regional policy coordination, their potential role in filling the missing gap in English regional governance has not yet been fully grasped.     

EXCHANGE WITHOUT CAPTURE: THE UK FINANCIAL OMBUDSMAN SERVICE’S STRUGGLE FOR ACCEPTED DOMAIN

This article explores the formation of public organizations’‘domain perception’, that is, their internal interpretation and external articulation of their role and its boundaries. The analysis is based on non‐participant observation research of the UK Financial Ombudsman Service (FOS), and archival research of its predecessor organization, which handled consumer complaints regarding the retail selling of financial products. I show that the FOS’s articulation of its domain emphasized the strictly individual and confidential nature of its complaint handling, rather than formulation of general principles to guide firms’ sale practices. This domain perception embodied an implicit exchange between the ombudsman and the retail financial industry on behalf of consumers, and distinguished the ombudsman’s role from that of the Financial Services Authority and the civil courts. The case is employed as means for theory building regarding the nature of public organizations’ domain perceptions and the process by which such constructs develop in regulatory contexts.     

THE EUROPEAN UNION ‘MODEL’ AND ADMINISTRATIVE CO‐OPERATION: THE CASE OF NORTHERN IRELAND AND THE REPUBLIC OF IRELAND

This article examines the relevance of the European Union (EU) model of governance in explaining the innovative administrative arrangements established by the 1998 Good Friday Agreement, the North‐South Ministerial Council (NSMC), and in particular its joint secretariat. The first section of the article sets out five models of the EU that may be applied to the NSMC. The second section provides an overview of the cross‐border relationship until 1998 and the third section examines the administrative relationship since 1998. In conclusion, the similarities between the NSMC secretariat and the open coordination model of the EU are highlighted.     

A COMMENT ON ADAMS AND BALFOUR: DIGNITY VIOLATIONS,AN ALTERNATIVE VIEW OF ‘ADMINISTRATIVE EVIL’

The major focus of Adams and Balfour’s article in this volume is on what they call ‘administrative evil’ where ‘evil’ is not intended but somehow inherent in modern ‘technical rationality’. Adams and Balfour draw inspiration from Bauman’s (1989) work and, further, use the interesting metaphor that administrative evil is ‘masked’. This means it is difficult to recognize – unlike intentional evil which is ‘unmasked’, that is, readily recognized. Common to both forms is that ‘evil’ implies ‘depriving of humanity’ or to ‘make someone suffer’, and there is no reason to question this. A basic aim of the article is thus to draw attention to ‘masked evil’, phenomena Adams and Balfour believe are insufficiently attended to. There is a broad variety of problems which Adams and Balfour do not touch on but which more or less appropriately can be subsumed under the label ‘masked evil’. Adams and Balfour mention a continuum according to degree of deliberation on consequences. There are, however, no examples given of acts which do not occur at any extreme of deliberation. A related point is that there are historical and cultural determinants of whether (and to what extent) we regard some forms of suffering as ‘evil’ or not.     

POLICY DESIGN FOR LEGITIMACY: EXPERT KNOWLEDGE,CITIZENS, TIME AND INCLUSION IN THE UNITED KINGDOM’S BIOTECHNOLOGY SECTOR

More than ever, policy designers need to take legitimacy deficits seriously. To do so, they increasingly involve citizens in policy design processes and draw from a wider range of expertise. Where should they stop in terms of inclusiveness to citizens and expertise and for how long should they allow citizens and experts to be persuasive? These are the questions addressed in this article. Policy design legitimacy, the article argues, can be related to variations in designers and politicians’ inclination to resort to output‐oriented (expertise‐based) versus input‐oriented (citizen‐centred) design processes. Input‐oriented processes have a higher potential in terms of legitimacy deficit reduction than output‐oriented processes, but they take longer, notably because they require the involvement of large numbers of people. In contrast, output‐oriented processes have a slightly lower legitimacy potential, but can produce it faster. These propositions are illustrated by two policy design narratives drawn from the United Kingdom’s biotechnology sector.     

POLICY AS NARRATIVE: NEW LABOUR’S REFORM OF THE NATIONAL HEALTH SERVICE

Beginning with a brief review of the governance literature, a definition of governance in the National Health Service of England and Wales (NHS) is offered. This introduces an analysis of NHS reform, as presented in the recent policy literature. Using narrative theory, I critique this literature with reference to three key actors: the new organizational form of the ‘Foundation Trust’, NHS staff, and NHS patients. For each actor, a motif is identified and examined: ‘freedom’ for Foundation Trusts, ‘clinical governance’ for staff, and ‘choice’ for patients. Each of these motifs is instrumental in the narrative on NHS reform, whose main themes are emancipation, progress and duty. These are common to other political projects. This critique makes the rhetoric underpinning the recent policy literature more explicit, and underlines the created, contingent nature of New Labour’s account of NHS reform.     

THE IMPACT OF FORMAL ORGANIZATIONAL STRUCTURE ON POLITICO‐ADMINISTRATIVE INTERACTION: EVIDENCE FROM A NATURAL EXPERIMENT

The effects of different organizational structures are often assumed, expected or promised but seldom well documented through systematic studies ( Christensen et al. 2007, p. 144 ). Using evidence from a natural experiment including organizational data from 65 Danish municipalities and survey responses from 1014 politicians and 403 administrators, the article analyses whether and how two different organizational leadership models affect the interaction between politicians and administrators. The analyses show the expected differences in the patterns of interaction between politicians and administrators when comparing municipalities using a traditional sector‐based model and municipalities using a more recent executive board approach. Compared to the sector‐based model, the new model has the intended effects of cutting ties between politicians sitting on specialized committees and administrative leaders of single service departments, and strengthening the relations between the political and administrative leadership.     

SELF‐REGULATION WITHIN THE REGULATORY STATE: TOWARDS A NEW REGULATORY PARADIGM?

An emerging feature of the modern regulatory state in Britain and elsewhere is the promotion of self‐regulation. This paper examines the relationship between the state and self‐regulation in the context of the challenge of meeting public interest objectives. It draws on research on the policy and practice of self‐regulation in recent years in Britain. The paper argues that the institutions, processes and mechanisms of the modern regulatory state and the ‘better regulation’ agenda in Britain, notably those that aim to foster transparency and accountability, can assist in the achievement of public interest objectives in self‐regulatory schemes. We conclude that a ‘new regulatory paradigm’ can be put forward which involves a form of regulatory ‘subsidiarity’, whereby the achievement of regulatory outcomes can be delegated downwards to the regulated organizations and self‐regulatory bodies while being offset by increasing public regulatory oversight based on systems of accountability and transparency.     

THE STATE OF PUBLIC ADMINISTRATION: A PROFESSIONAL HISTORY, 1970–1995

This article surveys developments in the profession of public administration in Britain in the 1980s. It explores: publications by analysing the contents of the leading journal; research grants through an analysis of ESRC awards; teaching through a resume of recent CNAA reports; and employment through a secondary analysis of the Political Studies Association's survey of the political science profession. Where possible, I compare the results with the findings of equivalent surveys in the US. These several surveys support five conclusions.     

THE ODYSSEY OF ADMINISTRATIVE REFORMS IN GREECE, 1981–2009: A TALE OF TWO REFORM PATHS

In Greece, two distinct reform paths led to institutional building and economic managerial types of reform. These two reforms, with the exception of the period 1996–2004, when both institutional and economic reforms were attempted, did not attract the same degree of attention. Institutional reforms were more successful than attempts at managerial reforms; reform implementation on the other hand varies. Economic and managerial reforms can be observed with regard to economic competition, the opening up of the market, and reducing the size of public sector, all areas where pressure from the EU has been stronger. Decentralization reforms were more important politically than administratively. Citizens' rights and service delivery were conceived as reforms of democratization and modernization rather than as managerial reforms. ‘Agencification’ amounted to circumventing existing ministerial structures. Change was incremental, and reforms were minimally guided by the New Public Management paradigm, because of little emphasis on changes imbued by managerial and economic values. Reform dynamics benefited not only from outside pressures but also from the operation of internal, ‘modernizing’ forces.     

IT’S WHERE YOU ARE THAT MATTERS: THE NETWORKING BEHAVIOUR OF ENGLISH LOCAL GOVERNMENT OFFICERS

Increased complexity in the world of public management has resulted in the growth of networks of actors who, operating interdependently, co‐produce public services. Much of the prior networking literature conflates structure (the network) with behaviour (networking). Based on this concern we analyse the managerial networking practices of over 1,000 officers in English local government. We find extensive networking activity amongst three groups of officers and show that corporate officers, chief officers and service managers develop logical patterns of interaction among network nodes and initiation that reflect their level of management. We conclude that where you are in the organizational hierarchy matters for networking behaviour and discuss the implications of these findings for future research.     

PUBLIC SECTOR INNOVATION FOR EUROPE: A MULTINATIONAL EIGHT‐COUNTRY EXPLORATION OF CITIZENS’ PERSPECTIVES

This study presents a three‐year effort to study public sector innovation in Europe from the viewpoint of the citizen. It examines a model of public sector innovation across a multinational sample of eight countries and 626 participants. The paper develops a theory of antecedents to and consequences of innovation in public administration as perceived by knowledgeable citizens and end‐users. Participants were senior and mid‐level managers of third sector organizations that work closely with citizens both as individuals and groups, and with public sector agencies in various domains. Structural Equation Modeling technique was used to examine two theoretical and five alternative models. Major findings that transcend national borders were found to be: (1) responsiveness, together with leadership and vision are important antecedents of innovation in the public sector; (2) public sector innovation affects trust in and satisfaction with public administration; and (3) the effect of public sector innovation on trust and satisfaction is both direct and mediated by the image of public organizations. The paper ends with a discussion of the theoretical and practical implications for public administration theory, especially for public sector innovation in Europe, and with directions for future studies.     

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.     

WHAT’S MEASURED IS WHAT MATTERS: TARGETS AND GAMING IN THE ENGLISH PUBLIC HEALTH CARE SYSTEM

In the 2000s, governments in the UK, particularly in England, developed a system of governance of public services that combined targets with an element of terror. This has obvious parallels with the Soviet regime, which was initially successful but then collapsed. Assumptions underlying governance by targets represent synecdoche (taking a part to stand for a whole); and that problems of measurement and gaming do not matter. We examine the robustness of the regime of targets and terror to these assumptions using evidence from the English public health service on reported successes, problems of measurement, and gaming. Given this account, we consider the adequacy of current audit arrangements and ways of developing governance by targets in order to counter the problems we have identified.     

NEW PUBLIC MANAGEMENT FOR THE ‘CLASSICAL CONTINENTAL EUROPEAN ADMINISTRATION’: MODERNIZATION AT THE LOCAL LEVEL IN GERMANY,FRANCE AND ITALY

The article is aimed at analysing New Public Management (NPM) reforms at the local level in Germany, France and Italy. The case selection is justified by the fact that these three ‘classical’ Continental European countries have largely been missing from comparative administrative research thus far. The article focuses on local governments, since in all three countries these are considered the NPM forerunners and are acknowledged to be more advanced in reform implementation than are upper levels of government. Against this background, the purpose of this contribution is twofold. On the one hand, we wish to show to what extent and with what effects the NPM agenda has been taken up at the local level in Continental Europe. On the other hand, taking a comparative perspective over time, we wish to ask whether or not there has been increasing convergence or divergence between the three countries as a result of these reforms.     

‘THE GREAT DOCK AND DOLE SWINDLE’: ACCOUNTING FOR THE COSTS AND BENEFITS OF PORT TRANSPORT DEREGULATION AND THE DOCK LABOUR COMPENSATION SCHEME*

Deregulation of the port transport industry was predicted to bring much needed jobs and investment to Britain's ailing dockland areas, lower prices for port users and consumers, and improved international competitiveness. These benefits were anticipated to far exceed any attendant costs. But the benefits have failed to materialize, largely because the government failed to appreciate the non-competitive structure of the industry or the effects of the National Dock Labour Scheme on the economic performance of the ports, while the costs were substantially underestimated. Consequently, the costs of deregulation have exceeded the benefits. As in the past, current industrial policy has been dictated by the apparent‘labour problems’of the docks, but the new system of deregulation, founded on the mass redundancy of exregistered dockers and a re-assertion of managerial prerogative, has exacerbated rather than resolved the underlying structural weaknesses of the industry. In particular, deregulation has ushered in a new era of casual employment on the docks. Unless, or until, public policy addresses these problems the costs of deregulation will continue to accumulate.     

INFORMATION DEPENDENCY THEORY: FURTHERING THE UNDERSTANDING OF A MANAGER'S PREDILECTION TO USE GENDER AS A BASIS FOR PAY AND ORGANIZATION HIERARCHICAL LEVEL DECISIONS

The predilection to use gender as a basis for pay and organization hierarchical level decisions has emerged as a significant topic in management literature. Related issues are the theories of information dependency and gender segregation. This article discusses the theoretical foundations of information dependency theory confirming the importance of subordinates' control of resources, including performance capabilities. Insights gained through this study may provide business professionals with the ability to recognize and avoid the use of gender as a basis for pay and hierarchical level within both the organizational and managerial contexts.