Informal payments for health care services – Corruption or gratitude? A study on public attitudes,perceptions and opinions in six Central and Eastern European countries

In this study we aim to compare the public perceptions towards informal patient payments in six Central and Eastern European countries (Bulgaria, Hungary, Lithuania, Poland, Romania and Ukraine). Overall, around 35–60% of the general public in each country has ever made informal payments, though informal cash payments are perceived negatively, mostly as corruption. In-kind gifts are often seen as a token of gratitude. However, significant differences among countries are observed. Despite the public support for the eradication of informal payments, there are population groups who favor their existence and this should be taken into account in policy-making.     

Reviews

Books reviewed in this article:
Camilla Stivers (ed.), Democracy, bureaucracy and the study of administration
Jonathan S. Davies, Partnerships and regimes: the politics of urban regeneration in the UK
Simon James and Virginia Preston (eds.), British politics since 1945. The dynamics of historical change
Jenny Fleming and Ian Holland (eds.), Motivating ministers to morality
David Richards and Martin J. Smith, Governance and public policy in the UK
Mark Bovens, Paul 't Hart and B. Guy Peters (eds.), Success and failure in public governance: a comparative analysis
Alistair Cole and Peter John, Local governance in England and France     

Introduction

Central Eastern Europe (further CEE) has been thoroughly reconstructed during nearly a quarter of century since the fall of the Berlin wall and the end of the cold war. The CEE countries turned to the West for economic and technological advancement, for political and administrative models as well as for protection. The authors coming from eight different countries look at the place and role of the former member states of the Warsaw Pact in the new European and international constellation. This concept of CEE includes most pro-western states of the former ‘Eastern block’: the four countries of Central Europe (Poland, the Czech Republic, Slovakia and Hungary) and the Baltic states (Lithuania, Latvia and Estonia). There were many tumultuous political developments in and around the region within the last decade, and especially during the last five years when the financial crisis started to take its toll. While the Atlantic link of Central and Eastern Europe is still strong, many commentators have pointed out its wearing strategic meaning. The balance between the focus on the USA and the EU has shifted in favour of Europe. However, this shift has rather been an incomplete one due to the region's own political and economic problems. The aim of this special issue is to analyse the new constellation by looking at the CEE countries themselves, at their ability to react and adapt, produce sound political strategies and act on as national actors: through bilateral ties, regional co-operation, NATO and the EU. Also, the main external actors - the USA, Russia and Germany - are looked at as they directly influence the way how the CEE countries shape their policies.     

国际金融危机背景下对中东欧经济转轨问题的再思考

转轨20年来,中东欧国家已经建立了市场经济体制,经济转轨的任务已经完成。围绕中东欧经济转轨方式的争论,如休克疗法与渐进主义等,在转轨20年后虽然已无现实意义,但仍具有永恒的学术意义。全球化与欧洲化为中东欧国家的赶超创造了有益的条件,但全球经济的波动也给中东欧国家带来了潜在的风险。国际金融危机并不会导致中东欧国家抛弃现有的增长模式,但并不排除中东欧国家对增长模式进行微调。国际金融危机的冲击对"改革疲乏症"敲响了警钟,为中东欧国家进一步加快改革提供了契机。     

Analysis of Factors of Overpricing in Public Procurement: A Study for Low-performing EU Countries

ABSTRACT

The paper deals with the issue of overpricing of public procurement in low-performing EU countries. It examines a uniquely large sample of public procurement in 11 Central and Eastern European countries. Hierarchical regression is used to analyze the factors that influence public contract. Our results indicate that institutional factors have a greater impact on overpricing than individual decisions by the contracting authority. Our analysis for low-performing EU countries provides interesting results and also draws attention to behavior that is not typical of the better established and more advanced EU countries. Our results are particularly important for public policy in each country, as they show the direction of regulatory action in the field of public procurement. The results introduce a debate on the appropriateness of “one size fits all” regulations within the EU.     

Citizen response to regional integration in the Americas: The cases of Costa Rica and El Salvador

This study examines public opinion in Costa Rica and El Salvador regarding regional integration in Central America. Recent efforts at regional integration as well as the response of the governments of the above countries to those efforts are reviewed. Public opinion toward regional integration is significantly more positive but less structured in El Salvador than in Costa Rica. Differences in the international and domestic contexts help to explain the differential responses in these two countries. Likewise, contextual factors help to account for differences between Central American and European publics in attitudes toward regional integration. Charles L. Davis is associate professor of political science at the University of Kentucky. His interests are Latin American politics and comparative political behavior. Matthew J. Gabel is assistant professor of political science at the University of Kentucky. His interests are European politics and the politics of regional integration. Kenneth M. Coleman is a former professor at the University of Kentucky, the University of North Carolina-Chapel Hill, and the University of New Mexico. His interests are Latin American politics and public opinion.     

The League of Polish Families between East and West,past and present

Historical legacies play an important role in the rise of radical right parties in Central and Eastern Europe. This article conducts an in-depth study of the trajectory of a particular radical right party, the League of Polish Families, in a particular Central and East European country, Poland. The central objective of the article is to highlight that, although there are important similarities between the League of Polish Families and other radical right parties in both Central and Eastern Europe and Western Europe, the League of Polish Families differs in some respects, such as the composition of electorate and ideology from these parties. The article shows that the observed differences have their roots in the Polish historical legacy, that on some accounts deviates from the historical legacies present in other Central and East European countries.     

Leninist beneficiaries? Pre-1989 legacies and the radical right in post-1989 Central and Eastern Europe. Some introductory observations

A central topos in the study of Central and Eastern European contemporary politics in general, and of its radical right politics in particular is the emphasis on the extraordinary relevance of history and geography. In fact, the entire transformation process after 1989 is often clothed in terms of historical and geographical categories, either as a “return of history” or a “return to Europe”, or both. In these various scenarios, the radical right claims a prominent place in this politics of return, and the study of this current echoes the more general concern, in the analyses of the region, with historical analogies and the role of legacies. Sometimes analogies are drawn between the post-1989 radical right and interwar fascism, in terms of a “Weimarization” of the transformation countries and the return of the pre-socialist, ultranationalist or even fascist past – the “return of history”. Others argue that since some Central and Eastern European party systems increasingly resemble their Western European counterparts, so does the radical right, at least where it is electorally successful – the “return to Europe”. According to yet another line of thought, the radical right in the region is a phenomenon sui generis, inherently shaped by the historical forces of state socialism and the transformation process and, as a result and in contrast to Western Europe, ideologically more extreme and anti-democratic while organizationally more a movement than a party phenomenon. In all these approaches, the key concepts of “legacies” and the radical right are often underspecified. This volume takes a closer look at the intersection of history or particular legacies, and the mobilization of the radical right in the post-1989 world of the region, while attempting to provide a sharper focus on key concepts. Regardless of the different approaches, all contributions show that with the radical right, a peculiar “syncretic construct” (Tismaneanu) has emerged in Central and Eastern Europe after 1989, which is derived from both pre-communist and communist legacies.     

Economic Transformation Outside the Law: Corruption,Trust in Public Institutions and the Informal Economy in Transition Countries of Central and Eastern Europe

This article considers the role of the informal economy in Central and Eastern European post-communist countries. The informal economy is defined as the ‘black’ economy, which is monetised but outside the law (often illegal) on the one hand and the ‘household’ and ‘social’ economies which are non-monetised and non-legal in the sense that they are outside of legislation. The article shows that in some countries the black economy is very important for supporting household incomes (Serbia and Croatia) and in other countries the household or social economies are predominant (especially Romania and Ukraine). In a third group of countries the formal economy predominates over other economies (especially the Czech Republic and Hungary). The article goes on to look at what kinds of people participate in these different economies and concludes that whilst the household and social economies are a social safety net for the poor, the elderly and those in rural areas, the black economy is more likely to be an option for those who are already better off to improve their incomes. The article considers the implications of this for attitudes to the legitimacy of the public realm and finds that greater participation in the informal economy is associated with both loss of trust in public institutions and increased perception of corruption. Therefore it is hypothesised that economic activities that take place ‘outside the law’ could lead to a decline in confidence in the state, although there are important variations between countries.     

The Investment-Promotion Machines: The Politics of Foreign Direct Investment Promotion in Central and Eastern Europe

A variety of foreign-led economies emerged in Central and Eastern Europe in the late 1990s. State economic strategies in the Visegrad Four region (V4) of the Czech Republic, Hungary, Slovakia and Poland have converged towards a distinct model of competition states. This article investigates the politics of investment attraction and promotion of particular investors within the states and regions in Central and Eastern Europe. It analyses coalitions of social actors which form in the process of bidding for investors and promoting them in the regions. These coalitions, the investment-promotion machines, can be understood as power blocs underpinning the competition state at the regional level. The analysis draws primarily on case studies of attraction and promotion of foreign direct investment (FDI) in the Czech Republic and Slovakia.     

Lustration after totalitarianism: Poland’s attempt to reconcile with its Communist past

The former Communist countries in Central and Eastern Europe have attempted to reconcile their Communist past in different ways. It is in Poland, however, where the issue of dealing with its Communist past through attempts at lustration has been especially fraught. It will be argued here that Poland’s lustration problems are caused primarily by a failure to understand the specific nature of totalitarian dictatorship that existed in Poland under Communist rule.     

What Makes Them Successful? Influential Interest Groups in Hungary (1990–2014)

Although many scholars of Central and Eastern Europe politics write about the relative weaknesses of civil societies, some studies delivered evidence of cases where interest groups were able to influence particular decisions and policies. Therefore, we aimed at identifying and examining the most influential national interest groups of eight different policy areas in post-communist Hungary hoping to explore the reasons for their success. Older generations of organisations benefit from political embeddedness, while newer advocacy groups rely more on legal instruments and public mobilisation. The operation of successful groups has not been affected by the strong political polarisation of the Hungarian party system.     

Extraordinary politics in the Polish transition

Among the arguments for rapid economic reform in transitions to the market in Central and Eastern Europe, scholars have argued that rapid reformers could better take advantage of the period of `extraordinary politics' at the beginning of the transition. Regime transitions provide a unique opportunity for politicians to implement economic reform since the public is more likely to grant the government room to reform. If the public is more likely to give politicians this window of opportunity, politicians should implement far-reaching reforms during that period. I test two propositions in this paper: (1) politicians in office during a period of liberalization will get high positive ratings at the polls which will gradually deplete over time; and (2) at the beginning of the transition, views of the current economic situation will not predict views of politics. I find that approval of the Polish government was unusually high in the first one and one-half to two years of the Polish transition. In the same period, assessments of the current economic situation only weakly affected assessments of politics. After the period of extraordinary politics comes to an end, the relationship between political and economic assessments is much stronger. Thus, in a country with a harsh economic reform program and six contentious national elections within eight years, there is strong evidence that politicians benefited from a period of extraordinary politics at the beginning of the regime.     

Navigating the dichotomy: The top public servant's craft

How in their day‐to‐day practices do top public servants straddle the politics–administration dichotomy (PAD), which tells them to serve and yet influence their ministers at the same time? To examine this, we discuss how three informal ‘rules of the game’ govern day‐to‐day political–administrative interactions in the Dutch core executive: mutual respect, discretionary space, and reciprocal loyalty. Drawing from 31 hours of elite‐interviews with one particular (authoritative) top public servant, who served multiple prime ministers, and supplementary interviews with his (former) ministers and co‐workers, we illustrate the top public servants’ craft of responsively and yet astutely straddling the ambiguous boundaries between ‘politics’ and ‘administration’. We argue that if PAD‐driven scholarship on elite administrative work is to remain relevant, it has to come to terms with the boundary‐blurring impacts of temporal interactions, the emergence of ‘hybrid’ ministerial advisers, and the ‘thickening’ of accountability regimes that affects both politicians and public servants.     

International assistance and democracy: Assessing efforts to assist post-communist development

This article surveys political development frameworks for analyzing the post-Communist transition to political democracy. Parallels with postcolonial events in Third World countries should caution against overoptimism about the prospects for mutually reinforcing economic and political development. In general, the study of Third World political development suggest that rapid regime transition with low mass participation is unlikely to result in sustainable democratic politics, especially where severe economic dislocations are present. High rates of participation during regime change may lead to rapid disillusionment with the performance of postrevolutionary government. It is thus argued that states wishing, for various reasons, to assist in smoothing the transition from communism should pay heed to the cautionary experience of Third World development assistance and monitor the political dimensions of the transformation, such as the stability of coalition governments, electoral turnout, ethnonationalism, as well as the orthodox economic indicators like inflation and rates of domestic investment. With respect to international assistance to the former Communist countries of Eastern and Central Europe, the article shows that the capacity of the Group of Twenty Four (G-24) donors to aid economic recovery is well below what is requested, or needed. Despite hosting a donor summit, the United States is taking a far less prominent role in the post-Cold War donor community than was the case in the analogous program for post-World War II recovery. This is having an impact on both volume and coordination of assistance. Finally, a strong, possibly ideological, preference among donors for finding private sector recipients for the bulk of assistance may erode the capacity of the post-Communist states to provide both infrastructure and political stability needed for investor confidence. Those making decisions about levels and modes of Western assistance should look beyond economic indicators of privatization as criteria for continued support and retain, where possible, political development objectives in both financial and project assistance. While we must not assume that the record of supporting democracy in Central and Eastern Europe will prove to be any better than in many Third World regimes, the greater security salience of Eastern Europe’s stability adds urgency to the task of applying political development lessons to the post-Communist experience. Malcolm J. Grieve specializes in political development and international political economy and in his current research is exploring the connections between the two fields with regard to analysis of the post-Communist transition. Recent publications include “Economic Imperialism”, in D. Haglund and M. Hawes, eds.,World Politics: Power, Interdependence and Dependence (Harcourt Brace Jovanovich, 1990) and “Debt and Imperialism: Perspectives on the Debt Crisis,” in S. Riley ed.,The politics of global debt (Macmillan 1993). ...in Central and eastern Europe, we are seeking to demonstrate in practice the idea that free government can mean good and stable government, and that free enterprise can mean economic opportunity for all.U.S. Deputy Secretary of State, Lawrence S. Eagleburger, 27 February 1991. There is nothing more difficult to arrange, more doubtful of success, and more dangerous to carry through, than to initiate a new order of things.Machiavelli, The Prince     

Weberian Public Administration Versus New Public Management in Eastern Europe: The Case of Romania

As a recent member of the European Union (EU), Romania aligned its public policies to Westernized models of civil service reform. This article critically analyzes the impact of Human Resource Management (HRM) models as compared to a Weberian Easternized public administration culture, which continues to display strong hierarchical relationships, rather than the “networked” governance favored by some Western European countries.

The focus will be on the development of HRM policies and practices, taking as a set of case studies Romanian central government organizations. The key problem to be addressed is to understand why such organizations remain locked in ineffective systems of personnel administration. Yet, Romania, along with other Eastern European states, has been exposed to international reform movements in public management through policy transfer. The article will look for evidence of New Public Management (NPM)-type practices, in addition to HRM.

Moreover, the countries of Eastern Europe are far from homogeneous, and so an understanding of both the institutional and cultural context is crucial to ascertain the acceptability of NPM. In the case of Romania, this article considers HRM developments in a multi-culturally influenced state, which has also experienced Socialist regimes. However, policy innovations have started to appear, not only as a consequence of the international diffusion of “good practice” and “policy learning, ” but also stemming from the demands of European directives. Thus, the aim of this article will be to assess the role of policy learning in relation to HR reform in the public service.     

Prosecuting high-level corruption in Eastern Europe

Do Eastern European courts effectively constrain politicians and uphold the rule of law? Criminal prosecution of grand (high-level) corruption can further the central principle of equal responsibility under the law by demonstrating that even powerful political actors have to submit to the laws of the land. This article introduces the Eastern European Corruption Prosecution Database, which contains entries for all cabinet ministers (927 in total) who served in a government that held office in one of seven post-Communist Eastern European countries since the late 1990s. The systematic data collection reveals that Bulgaria, Romania and Macedonia consistently indict more ministers than Croatia, the Czech Republic, and Poland; Slovakia has barely indicted anyone. We aim to start a research agenda by formulating hypotheses about which countries will see more corruption prosecutions and which ministers' characteristics would make them more likely to face the court. We use the database to begin testing these hypotheses and find some evidence for several associations. We find no strong evidence that EU conditionality or membership raises the profile of the grand corruption issue or leads to more indictments. Party politics seems to affect the frequency of corruption indictments more than the structure and behavior of legal institutions. Indictment rates are lower when a former Communist party controls the government and individual ministers from junior coalition partners are more vulnerable to indictment than other ministers. The existence of a specialized anti-corruption prosecution or a more independent judiciary do not seem to lead to the indictment of more ministers on corruption charges. Finally, we discuss avenues of future research that our database opens, both for the analysis of country-level and individual-level variation.     

Poland,Germany and the EU: Reimagining Central Europe

Abstract

In this article, we look at the fissures in United Europe from both sides of the region where a post-Cold War ‘Middle/Central Europe’ should have been forged. How do leading German and Polish newspapers treat the categories of ‘Central’ or ‘Middle’ Europe relative to the concept of the Eastern–Western European divide and what are the discourses associated with these perspectives? At the time of a looming redefinition of the entire European project, what can media reports from Germany and Poland tell us about its future? We conclude that the media narratives in these two countries portend further tensions for European unity, since the new divisions now overlap the old ones. Our findings have implications for the future of democracy in the newly democratic countries of Central and Eastern Europe, including Poland.     

The Theory of International Media Diffusion: Political Socialization and International Media in Transitional Democracies

Despite the long-standing normative assumption that, for individuals in transitional states, exposure to Western media cultivates stronger attachments to Western political and economic values, the evidence presented here suggests otherwise. Using mass public survey data from the mid-1990s in five Central and Eastern European countries, this article demonstrates a general lack of support for international media’s positive contributions to individuals’ democratic attitudes and preferences for market economies. This finding is particularly unexpected because the countries under investigation represent ideal cases based on their proximity to Western democracies and international (Western) media sources’ capacities for extensive transnational media penetration into the region. Yet this failure to find persuasive evidence of the influence of international media diffusion on the development of Western political values sharpens our understanding of the process of political socialization in democratizing countries by eliminating an assumed source and is thus relevant to students of democratization, international development, and mass media.