LOCAL GOVERNMENT STRUCTURE AND PERFORMANCE: LESSONS FROM AMERICA?

The debate in the UK on the reform of local government structure is poorly informed by empirical evidence. This article bridges part of the empirical gap by drawing upon analyses of structural effects in the USA. Two main dimensions of structure are outlined: fragmentation and concentration, both of which can vary vertically and horizontally. Fourteen structural hypotheses are identified and categorized as technical, competitive and political effects. The empirical evidence from the USA suggests that fragmentation is associated with lower spending and concentration is associated with higher spending. The implications of the evidence for structural reform in the UK are analysed. It is concluded that the creation of a single-tier system may not lead to greater efficiency, and that the advantages of a two-tier system have been underestimated.     

ELECTED MAYORS: LESSON DRAWING FROM FOUR COUNTRIES

Countries can and sometimes do copy the institutions and practices of other countries in order to address problems and issues that they have in common with them. The office of directly elected mayor has become an increasingly common feature of local government throughout the developed democracies, spreading from its largely American origins to a range of European states. This paper develops a matrix for the analysis of elected mayors in different countries using as its horizontal axis the formal, informal and individual attributes of elected mayors and, on the vertical axis, their governmental, governance and allegiance roles. The matrix is then applied to analyse studies of elected mayors in four countries: the United States, England, Germany and Greece, in an attempt to derive comparative lessons applicable to the countries included in the analysis, as well as to countries considering or in the process of developing directly elected executive mayors. The issues examined include improving the internal co‐ordination of local authorities’ departments, the need for network management in increasingly fragmented or ‘hollowed out’ local government systems and the ways in which mayors attempt to secure their political survival and that of the offices they hold, by securing and retaining the allegiance of voters and stakeholders. It also explores the benefits and dangers of concentrating much formal power and informal influence in a single pair of hands. Its conclusions are offered both to demonstrate ways in which comparative studies of political institutions can be developed and in the hope that they may be of use to mayors and those concerned with the development and reform of local government and governance.     

COUNCILLORS’ RECEIPT AND USE OF CITIZEN INPUT: EXPERIENCE FROM NORWEGIAN LOCAL GOVERNMENT

The article expands citizen participation research by tackling participation from the viewpoint of elected officials – the recipients of citizen input. The article studies the role citizen input plays in elected officials’ decision making. Citizen input is defined as information elected officials obtain through direct contact with citizens and representatives of local associations. Using survey data from Norwegian local government, the article assesses how much citizen input councillors receive, and to what extent they use it to set local agendas. It is demonstrated that Norwegian councillors have a high degree of exposure to citizen input and that citizen input constitutes most councillors’ primary source of agenda‐setting inspiration. The article also examines differences in the extent to which councillors use citizen input, and draws on existing theoretical and empirical research to discuss how these differences can be explained. For example, findings that local government frontbenchers and highly educated councillors consider citizen input less useful than others do are explained by an analytical perspective emphasizing councillors’ varied needs for such information.     

BRITISH LOCAL GOVERNMENT INTO THE 21ST CENTURY

BRITISH LOCAL GOVERNMENT INTO THE 21ST CENTURY
Gerry Stoker and David Wilson (eds)
Palgrave Macmillan, 2004, 304 pp., £50.60 (hb), £18.99 (pb) ISBN: 1403918724     

PAYING FOR LOCAL GOVERNMENT: CHARGING FOR SERVICES

The latest Green Paper on reform of local government finance was published in January 1986. It represents an attempt to achieve local accountability which the present system is regarded as having failed to achieve. Increased use of fees and charges is seen as 'an even more direct way of ensuring that local people can see what they are getting for what they are paying' and, at the same time, 'has benefits in terms of efficiency as well as accountability'. This article critically appraises just what is meant by 'realistic charging policies', 'efficient use of resources' and 'effective pricing policies'. Realistic pricing policies are then outlined based on radical improvements in the nature and quality of information available to local authorities. The danger of a blinkered approach to increased use of charging is stressed and factors to be considered when reviewing charging are discussed.     

POLICY ANALYSIS IN BRITISH CENTRAL GOVERNMENT: THE EXPERIENCE OF PAR

Programme Analysis and Review (PAR) was an approach to policy analysis introduced in 1970 by Edward Heaths administration as part of a systematic attempt to develop 'rational' government. In the early years some substantial reviews were completed, but from 1973 the exercise faded as less political commitment was devoted to it and institutional compromise and disillusion spread. This paper charts the life of PAR until its official demise in 1979 and analyses its experience, Above all, it suggests that PAR was unable to satisfy the technical, organizational and political preconditions for effective analysis.     

THEORIES OF LOCAL GOVERNMENT REORGANIZATION: AN EMPIRICAL EVALUATION

Local government reorganization has been widespread throughout Europe in the postwar era. Three broad types of theory have set out to explain this phenomenon in a cross-national context; a welfare state perspective, a functional revolution perspective and a political perspective. The validity of these theories is assessed in the specific context of Belgium. The evidence suggests that none of the prevailing theories can make much headway in explaining the timing and form of reorganization. More promising explanations are to be found through examining broader values, and beliefs and more specific political constellations. The claim or implication that the major local government reorganizations of the postwar era were, in the different countries that experienced it, independent events produced by a common pattern of domestic social, economic or political development has the trappings of scientific theory without its true substance – the ability to explain.     

CHARGING FOR LOCAL GOVERNMENT SERVICES: A COHERENT PHILOSOPHY

This article reviews and critically appraises the alternative rationales and methodologies for local authority charging practice which have been proposed in the past. It goes on to advocate a charging rationale based on customized value-added services. This is argued to be a coherent charging philosophy which can realistically fit into the evolving policy, management and decision-making framework of local government. It allows for individual choices within a wider framework of collective choice and provision of services. It is capable of blending efficiency and equity criteria within a system of practical charging policies for local government services. Whilst retaining consistency of rationale, the proposal can be moulded to suit both the objectives and the particular characteristics of individual services. Practical examples are given, specific criticisms addressed and implementation is considered. The essential point is that it is compatible with the institutional framework within which it is applied.     

THE THIRD SECTOR AND IMMIGRANT ABSORPTION: LESSONS FROM THE ISRAELI EXPERIENCE

This paper deals with the role of two third sector organizations in immigrant absorption in Israel during the mid-1980s through 1993. The Jewish Agency, a non-governmental, voluntary, non-profit “public institution” funded by Diaspora Jewry had responsibility for immigrants during their first year in the country. It represented world Jewry and Israeli political parties. A second third sector institution, the quasi-public party controlled state religious school system played a significant role in the education of Ethiopian immigrant children.

The paper evaluates their impact on the absorption of immigrants. To what extent did these third sector agencies pursue their own agendas and or serve the immigrants? The paper also examines the influence of Israel's political-administrative systems on the third sector. How unique is the Israeli experience? Hopefully the findings will shed new light on the politics of collaboration with the third sector in contemporary Israel.

Evidence presented here suggests that third sector absorbing agencies often pursued their own interests at the expense of the immigrants. The paper also reveals the complexity of the political and administrative character of Israel's third sector. Finally, the analysis shows the importance of political-administrative systems for understanding third sector collaboration in Israel.     

INNOVATION TYPE AND DIFFUSION: AN EMPIRICAL ANALYSIS OF LOCAL GOVERNMENT

This paper presents the first empirical test of innovation type and diffusion in local government. Five types of innovations – one product, three process and one ancillary – were tested in a multivariate model that included environmental, organizational and diffusion variables. The research was conducted on 120 upper tier English local authorities using a multiple informant survey instrument. Results indicate that adoption of innovation is both complex and contingent – different factors drive the diffusion of different types of innovation across upper tier English local government. These findings suggest that further research is required on the interactions of types of innovation in public organizations and that policy instruments developed to assist adoption need to be sensitive to variations between innovations.     

THE SEPARATION/SPECIFICATION DILEMMA IN CONTRACTING: THE LOCAL GOVERNMENT EXPERIENCE IN VICTORIA

This article draws on evidence from case studies of local government contracting in the Australian state of Victoria. It argues that one of the key elements of competitive tendering – the separation of purchasers from providers – undermines another of its essential mechanisms – the specification of services – at the point where previously in‐house services are exposed to competition. The managers who are to become purchasers lack the requisite knowledge of services, which instead resides in the minds of the service delivery staff whose work is to be subjected to competitive processes. Separating purchasing from service‐provision ‘distances’ the staff from the managers, impairing employees’ willingness to share the relevant information. At the same time, the introduction of competition increases the probability that staff will withhold that knowledge, and makes it harder on probity grounds to maintain the type of collaborative relationship which might overcome their reluctance to share it.     

EXECUTIVE EDUCATION FOR STATE AND LOCAL GOVERNMENT: A SURVEY

ABSTRACT

Executive education is a growth industry in the United States. Executive education programs and, more particularly, the variety of teaching techniques they use, promise to be key issues in the field of public administration in as much as they may be precursors of techniques and technology that will be used in more traditional teaching venues. This study reports the results of a survey of executive education programs conducted in 1998 under the auspices of the South Carolina Executive Institute. The survey covered four areas – curriculum, participants, faculty, and program administration. We conclude that the immediate future of executive education likely will be marked by a continuing emphasis on customization, experimental learning, and rigorous evaluation of the results. Two areas in which there are likely to be more significant departures from existing practices in public sector executive education are program alliances and the use of new communications and information technology.     

REVENUE SCARCITY AND GOVERNMENT OUTSOURCING: EMPIRICAL EVIDENCE FROM NORWEGIAN LOCAL GOVERNMENTS

It is often said that ‘necessity is the mother of invention’. In this article, we assess whether this also applies to the design of public authorities' service provision. In particular, we evaluate whether revenue scarcity – as an indicator of fiscal stress – induces government outsourcing. In contrast to previous studies, we exploit arguably exogenous variation in local government revenue across time and space to derive stronger inferences on the role of revenue scarcity for outsourcing. Using data from Norwegian local governments covering the period 1995–2012, our main results indicate that a decrease in local government revenues is linked to more outsourcing of both infrastructure and support services.     

A MAYOR FOR PARIS – AN EARLY EXAMPLE OF DECENTRALIZATION

This paper analyses the 1975 municipal reform which gave Paris its first elected Mayor since the days of the revolutionary Commune. Local government reform has proved notoriously difficult in France and the policy-making process in this case was complicated by the political situation, following the death of President Pompidou, in April 1974. His successor, Giscard d'Estaing, attempted to marginalize the Gaullist Party and to govern from the centre. Paris was the testing ground for this political strategy. The capture of the mayorship by the Gaullist Jacques Chirac was a personal humiliation for the President.
The reform demonstrates the reluctance of French governments, compared with their British counterparts, to radically mould their local government institutions. In particular, the constant reference during the debate to the words 'Mayor' and 'Commune', which have great symbolic power in France, arguably prevented the elaboration of an institutional structure adapted to the peculiar needs of the Paris urban area.     

LONDON DOCKLANDS: AN ANALYSIS OF POWER RELATIONS BETWEEN UDCs AND LOCAL GOVERNMENT

This article sets up a framework for examining the differences and relations between Urban Development Corporations and local government. It analyses the interest to which the two sorts of body are responsive, the organizational structures which condition their relationship and the styles of decision-making through which they operate. This framework is used to analyse the London docklands experience with the objective of distinguishing the special aspects of this case from those which are likely to be generally applicable.     

THE LIMITS OF CHANGE: LOCAL GOVERNMENT AND EQUAL OPPORTUNITIES FOR WOMEN

Women make up the majority of local government employees in Great Britain but are not, however, evenly represented throughout the employment structure. Rather, women are overwhelmingly concentrated in low paid, low status and often part-time jobs, and are under-represented as decision makers, either as managers or elected council members. The situation of black and ethnic minority women is one of even greater marginalization. From 1982–7 over 200 local authorities adopted equal opportunity (EO) policies, both for employment practice and service delivery, the aims of which included redressing this inequitable situation for women. The achievements of these EO policies have proved to be very limited. Most have been introduced with few resources and little managerial or political support and without mechanisms for implementation or management accountability. EO reforms have been contained within the existing relationships and structures of local authorities when by definition, successful EO policies will upset the status quo. Nevertheless important lessons have been learned from this first pioneering phase of EO policy development.     

THE CHANGING STATE OF LOCAL GOVERNMENT: RESTRUCTURING FOR THE 1990s

In the recent past, local government has largely been analysed as if its very existence were in danger from centrally inspired legislative reforms and financial controls. Such a starting point may make it more difficult to assess the changes which are taking place and which are likely to dominate in the 1990s. Three other possibilities are considered here. The first, is the notion of an 'enabling' authority; the second, the possibility of a shift towards post-Fordist local government; and the third, the possibility of more corporatist or neo-corporatist forms of politics at local level. It is suggested that the third is the most helpful approach for understanding the likely direction of change in the 1990s, and argued that changes within local government have to be understood in the context of wider restructuring of the UK state.     

AMBIGUITY IN POLICY LESSONS: THE AGENCIFICATION EXPERIENCE

The policy transfer literature identifies the importance of context in shaping policy selection. However, countries with distinctly different contexts are pursuing the agencification of the public sector. Why? The solution to this puzzle lies in the ambiguity associated with public management ideas, which allows policy adopters room to interpret management doctrines and experience. The result is that public management ideas that carry the same identifying label can mask variation in the understanding of the policy, the motivation for adoption and in implementation outcomes. The process of interpretation allows policy‐makers in different contexts to: (1) adopt superficially similar policy concepts; (2) overlook negative experiential learning that contradicts the policy doctrine; and (3) adopt policies unsuitable to the national context.