PERFORMING GOVERNANCE: A PARTNERSHIP BOARD DRAMATURGY

This paper explores the governance of complex public sector partnerships through a detailed case study of a Joint Commissioning Partnership Board (JCPB) in the South East of England. It argues that a theoretical and empirical focus on the instrumental roles of boards has resulted in an under‐appreciation of their symbolic purposes, especially in the context of the governance of inter‐organizational relationships. The paper considers the performative dimension of partnership governance, highlighting the role of the symbolic in institutional enactment. Following a brief overview of governance in public sector partnerships, the case study site for the empirical research is introduced. The instrumental and symbolic roles of management boards are considered from a new institutionalist perspective and a dramaturgical analysis of institutional enactment undertaken to explore interplays of the symbolic and instrumental in strategy formation. Some implications for our understanding of the symbolic in partnership governance are discussed.     

Emerging Challenges to the Public Capacity in the Era of Evolving Public Administration: Toward Collaborative Public Management

New paradigms of public administration have been introduced in government in order to cure administrative ills around the world. Various trajectories of public sector reforms have been actively introduced in many countries and the benefit of shifting to new paradigms of public administration has been well documented. However, the cost or the consequence of public sector reforms remains understudied. Accordingly, the purpose of this article is to deal with the consequences of the paradigm change of public administration and government reform because the author sees that the public capacity has declined or at least not improved in recent years while a wide range of innovations have been carried out by many governments under the New Public Management and governance perspectives. This article first looks at the evolution of public administration and its implication, followed by a discussion on government reform and its unintended consequences, and governance change in South Korea. Then various issues on new challenges such as the lack of the public capacity, and new tasks such as capacity building and calls for curriculum development, will be elaborated, followed by conclusions.     

Governance in the UK Public Sector: the Involvement of the Governing Board

Governing boards are a prominent feature of many public sector organizations today. These boards have been modelled on the private sector board of directors. Like company boards, one of their main functions is to provide strategic leadership and policy direction for the organization. The role of managers and chief executives is to implement this. This paper examines the extent of involvement of one public sector board, the school governing body, in strategic activity. Using empirical evidence from a number of semi-structured interviews conducted in schools, its findings indicate that governing bodies are not involved at a high level in strategy within schools. Rather, headteachers are more likely to be undertaking this activity. Reflections are made about the relevance of the 'board of directors' model for both governing bodies and the public sector more generally.     

Governance in Public and Private Management

This article analyses the effect of governance in the delivery of public services, and the advantages of collaboration with the private sector in the provision of these public services. The article is not intended to be the conclusions drawn from an empirical study, but rather is based on the experience of a practitioner who has worked as a civil servant in the public sector and as a manager in the private sector. The advantages of private participation are listed, without prejudicing the role of regulator which must be exercised by the public sector.     

Public Policies, Private Strategies and Local Public Spending Bodies

Local Public Spending Bodies (LPSBs) occupy an important position in the contemporary structures of governance in the UK. As exemplars of many of the diverse characteristics of the New Public Management, LPSBs inhabit the fuzzy space between the public and private spheres, both in terms of organizational structure and service delivery. One finding from recent research into the internal governance of three kinds of LPSBs – Further Education Colleges, Housing Associations and Training and Enterprise Councils – was that the language of strategy predominated over that of policy on the boards of such organizations. In this article we assess the significance of this finding. We contend that the two terms are not interchangeable and that a vital distinction needs to be maintained between them. Specifically we argue that policy refers to collections of decisions grounded in public values whereas the concept of strategy, particularly as currently understood in the context of the New Public Management, refers to the positioning of an organization in its struggle to survive and grow. We conclude that LPSBs have been invited to behave strategically within a framework of increasingly centralized policy objectives and resource allocations.     

Reinventing Governance for Performance in South Asia: Impacts on Citizenship Rights

Abstract

In line with the global trend of “reinventing governance” based on market‐driven policies and structures, South Asian countries have adopted some major reforms in governance during the recent two decades. While this market‐led shift in governance is largely intended to enhance its performance in terms of greater efficiency and quality, there is a tendency to overlook its implications for the rights and entitlements of citizens in these countries. The article examines the basic tenets or features of this transition in governance, encompassing the replacement of public sector by private sector and the transformation of public management based on business principles. The main objective, however, is to examine the critical impacts of this new mode of governance on the political and social rights of citizens in South Asia. The article concludes by stressing the need for paying adequate attention to citizenship rights in pursuing such reforms in governance.     

Governance Structures and Political Processes in a Public System: Lessons from Quebec

Debates about the form and nature of changes in the management of public systems have for some time now been articulated under the theme of governance. All definitions of governance are related to the problems of securing convergence among a diversity of actors and organizations, of redistributing power in an organizational or social field characterized by a high level of heterogeneity and of gaining sufficient legitimacy to act in the name of the collectivity. This paper concentrates on the dynamics involved in the emergence of new governing capabilities in public systems. More precisely we study the implementation of regionalization policies in the health care field (in this case of Canada) conceived as one major attempt to renew the governance structures in a large public system. Our study draws on the comparative analysis of empirical regulation in three health regions as contrasted with three ideal type models of governance in regionalized systems. The first model is inspired by an economic approach to organizational behaviour and focuses on mandate‐giving, execution and control. The second model is based on a political interpretation of behaviours and focuses on negotiation processes between actors. Finally, the third model is based on the theory of deliberation as well as the institutional school of policy analysis and focuses on direct public participation in public affairs. Evidence for this article is primarily derived from interviews with key informants and documentary analysis. Our analysis shows that none of the three models is sufficient in itself to grant regional structures the authority and legitimacy they need to create added value in terms of regulation that could ensure their survival. Regional Boards are thus forced by environmental constraints to conceive and implement original mixes of these models. The two predominant logics in regional action are inspired by the first two models although the last one also has an influence. Overall, our study also suggests that the implementation of new sources of governing authorities in a public system is rather fragile because of dependence on existing institutions. Clearly, the attempt to modify the dynamics of governance in a given system must be conceived as a political exercise and not just as a technical problem consisting of the rational adjustment of policy instruments.     

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.     

Small Countries,Big Performers: In Search of Shared Strategic Public Sector HRM Practices in Successful Small Countries

This article compares strategic public sector HRM practices between 10 small countries that have consistently shown extraordinary economic, social, and governance performance. The fact that these small countries, which are traditionally considered to be disadvantaged, have become benchmarks of good government suggests they have uniquely maximized and leveraged their key resource: people. In search of novel lessons, we assess through secondary data how their public sectors have organized and institutionalized four key HRM activities: 1) selection, 2) appraisal, 3) training, and 4) compensation, and whether they engage in strategic, centralized efforts to architect and “bundle” these activities. Our exploratory case study findings show that these high performing countries employ various integrated efforts to attract the best and brightest into their public sectors, and train and reward them well, although they differ in terms of their centralization dynamics. We conclude our article with seven propositions for future research and implications for emerging small countries.     

Public Sector Participation and Compliance across National and Global Transparency Regimes

Transparency has recently become a widely supported norm of information regulation within and among states. Transparency may be a widely accepted element of good governance, but it has a number of dimensions and manifestations. This article is among the first to examine the relationship between public sector transparency at the domestic and global levels. While the extant literature suggests that we should expect a strong relationship between the degree of a jurisdiction’s domestic and global commitments to public sector transparency, our sample of the 33 jurisdictions for which data are available finds no such correlation. The article develops an explanation of this unexpected finding, which highlights the varied incentives to implement transparency-promoting reforms that different jurisdictions experience. This analysis suggests that many developing countries engage in marginal participation across regimes. More concerning are possible cases of mock compliance where states participate in transparency regimes without the intention of fully implementing their commitments. Mock compliance is of particular concern in the sphere of global governance in which sovereignty is contested and compliance mechanisms face unique challenges.     

From-Long Term To Short-Term Contracting

One can look at the arrival of New Public Management and the extensive public sector reforms inspired by this theory from many angles. Here we examine the shift from long-term contracting, typical of bureaucracy and traditional enterprises, to short-term contracting, borrowed from private sector governance methods. Short-term contracting has three principal uses in the governance of the public sector: (a) contracting with service providers after a tendering/bidding process; (b) contracting with the CEOs of the incorporated public enterprises; and (c) contracting with executive agencies about what they should deliver. Theoretical analysis, supported by substantial empirical evidence, suggests that short-term contracting eliminates the extensive post-contractual opportunism connected with long-term contracting, but is vulnerable to precontractual opportunism. Short-term contracting is not just another public sector reform fad, but constitutes a new tool for government which increases efficiency when handled with prudence.     

Public Scrutiny, Standards and the Planning System: Assessing Professional Values within a Modernized Local Government

Since the 1990s there has been a long-standing concern in government towards public sector accountability, management, efficiency and service delivery. A number of studies have attempted to analyse the multitude of individual changes and their manifestations through analyses based on a variety of institutional, policy and governmental distinctions. This paper attempts to specify the changes with particular reference to planning, and to consider the evolution of the public service ethic in planning towards more openness, scrutiny, transparency and efficiency with particular reference to the changing ethos of the professional employee. We first explore the  main impacts upon local government, the public service ethic and professional planning as a consequence of the Modernization agenda and freedoms and flexibilities initiative. We then look at how such changes have impacted upon the ethos and values in public service and planning. We draw on some evidence of Ombudsman cases to highlight issues of professional values in planning practice over the past decade before finally drawing these strands together in some conclusions. Our principal findings indicate that the much-trumpeted decline of services and standards may not have been as apparent as is sometimes portrayed and that internal professional attitudes and values towards the external changes may not have significantly altered over the same period.     

Network Governance of Private Sector Development Policy Implementation in Singapore

The discussion examines private sector development policy implementation in Singapore, examining the new role of the government's economic development agencies from the point of changing relationships among public and non-state actors in the policy arena. Singapore's model of private sector development consists of an exclusive network of partnerships among economic development agencies and between these agencies and private sector actors, such as business and organized labour, as integral policy stakeholders. As Singapore has moved within the past 15 years towards its articulated goal of becoming a knowledge-based economy and an industrial hub in the Asia Pacific region, the country's model of network governance is undergoing a gradual reconfiguration to include a greater role for local enterprises in the policy process. The changing institutional mechanics of network governance surrounding the new model of private sector development in Singapore are examined, along with the highlights of some implications surrounding this shift.     

Hands-off or Hands-on Governance for Public Innovation? A Comparative Case Study in the EU Cohesion Policy Implementation in Finland

ABSTRACT

Public innovation is increasingly strived for by involving non-state agents in policy implementation. Public governance theory has assumed the public administration better govern the activity hands-off by providing incentives and pressure. The theory-driven research agenda has, however, not sufficiently put the assumption to test. This paper compares two similar public innovation projects in employment management of which one was governed hands-off and the other hands-on. The cases reveal several problems with hands-off governance eventually risking innovation while hands-on governance consistently support innovation. Contrary to previous assumptions hands-off governance through competition in a complex environment confound the objective of the project. Hands-on governance, meanwhile, provide information and support that help the project to experiment and learn. The public governance theory should recognize the innovation potential of hands-on governance in the often complex public sector and be wary of mixing hands-off and hands-on governing techniques.     

Public Sector Reform in Central Asia and the Caucasus

Many developing countries are constantly seeking to reform their public services as part of a wider agenda which supports moves to a market economy and better governance arrangements. Some have embraced public management reforms as the template for their activities with limited success. This paper considers existing research on the impact of public sector reform in developing countries and offers an alternative approach, through case studies of Azerbaijan, Georgia and Kazakhstan, based on two keys elements: an agenda which attempts to shift developing countries to an outcomes based accountability approach operationalized through a “quality of life” framework; and, peer‐to‐peer learning.     

Innovation in Public Management: Is Public E-Procurement a Wave of the Future? A Theoretical and Exploratory Analysis

Project management has become an answer to many traditional organizational structuration and performance shortcomings, while gaining currency in business and public sector organizations. Public procurement systems have evolved into public electronic procurement systems with variations and distinctions in the age of globalization and digitalized complexities. This article examines the development of public e-procurement as an innovation in public management in the contexts of project management, public procurement management, and e-governance. It also links practice to theory—through a fourfold theoretical perspective—with contributions to the knowledge in public procurement, governance, and public administration.     

Local Government Public Servants Performance and Citizens Participation in Governance in Nigeria

Abstract

This paper examines the performance of public administrators at the local government level in Nigeria. It traces the development of local governments in Nigeria from 1945 to present times. It argues that the shift in the critical decision‐making powers and functions of local government requires its public administrators to be better‐trained professionals. However, without citizens' participation in governance, public servants' accountability will be low. The study addresses the following questions: How do public sector performance and development of actions by citizens affect accountability in the local governments? How much training do public administrators in Nigeria's local governments have in public management? What is the relationship between performance and citizenship participation in local governments' development process? The question of interests in this study is how public administration at the local government level can better serve Nigeria's communities and in so doing develop authentic relationship with citizen groups, and equitably enhance public trust, legitimacy, and performance of the public sector in the nation.     

Contract Regimes and Reflexive Governance: Comparing Employment Service Reforms in the United Kingdom, the Netherlands, New Zealand and Australia

Contemporary debates concerning the nature of 'new governance' typically focus upon the shifting roles played by bureaucracies, networks and markets in the provision of public services (Kooiman 1993; Ormsby 1988). At the core of these recent changes we find a strong interest in having private agents deliver public services. Sometimes this is expressed as privatization and in other cases a 'mixed economy' of public and private participation may be devised (Williamson 1975; Moe 1984). In this study a number of central elements of neo-liberal public management are brought together in a single focus upon the 'contract regime' in order to examine the extent to which single initiatives might combine to produce a recognizable system of governance. Such an institutional form may then be more carefully specified and its impact compared in different governmental systems. Using a four-country comparison of employment service reform the study shows that distinctions based upon degree of privatization do not adequately explain regime types whereas distinctions based upon 'compliance-centred' or 'client-centred' forms of contracting are more powerful. The type of reflexive interaction between different elements or levels of contracting also explains country differences.     

The Nature of a Public Service

Public services have been misunderstood. They are not simply services in the public sector, they are not necessarily there because of “market failure”, and they cannot be analysed by the same criteria as market-based provision. They have four defining characteristics. They exist for reasons of policy; they provide services to the public; they are redistributive; and they act as a trust. They consequently operate differently from production for profit, in their priorities, costs, capacity and outputs.     

Democratic Governance: A Genealogy

This essay draws on my book, Democratic Governance (Princeton University Press, 2010), to provide a genealogy of governance and to explore its implications for democracy. My arguments can be quickly stated: governance rose and spread as a consequence of new modernist theories and the public sector reforms that were inspired by these theories; policy actors respond to the challenges of governance by supplementing representative institutions with yet more modernist expertise.