South Korea: Searching for a New Direction of Administrative Reform

Government has never been under greater stress all around the world. Fundamental change is occurring at all levels of government. The need to cope with the rapid globalisation of the economy, the so-called borderless economy, and to maintain international competitiveness drives public management reforms. Governments must perform at higher levels of quality and productivity than ever before. The Gore Report, for example, constitutes a major attack on the bureaucratic management paradigm in the United States and its values of entrepreneurial managerialism dominate administrative practices around the world for the time being. This article first identifies a new management paradigm. Then it explores some international experiences with administrative reform in a comparative perspective to suggest a new direction of administrative reform for the future in South Korea.     

Between workfare and enablement – The different paths to transformation of the welfare state: A comparative analysis of activating labour market policies

Abstract.  The concepts that address different paths to transformation of the welfare state as a 'workfare', an 'enabling' or an 'activating' state share the idea that traditional welfare policies, mostly aiming at decommodification, are more and more replaced by social policies emphasising (re-)commodification. Activating labour market policy therefore is supposed to play a central role within the paradigm shift of welfare state policies. It is understood to involve a mix of the enforcement of labour market participation, the conditioning of rights and growing obligations of the individual at one side, and an increase of services in order to promote employability and restore social equity at the other. In this article, the different perceptions of the workfare and the enabling state perspectives on the positive and negative aspects of activating policies are reconstructed as 'pure forms' in order to obtain theoretical standards against which the empirical cases of activating labour market policies in Denmark, the United Kingdom and Germany are characterised and compared. The actual reform path is described by a combination of two indicators: the strength of the workfare and the strength of the enabling elements of the activating labour market policies. The evidence on activating labour market reforms confirms that in both dimensions a move in the same direction is taking place, but without producing growing convergence. Different welfare state types keep on producing different mixes of workfare and enabling policies, leading to very different levels of decommodification and (re-)commodification. Thus, an ongoing divergence of policies also exists within the new paradigm of an activating labour market policy, although single countries seem to change their alignment to a particular welfare state type.     

Rethinking corporatism and consensus: the dilemmas of German social-protection reform

This article explores the competing influences of institutional legacies and political negotiation in recent German social-protection reform. Long a paragon of consensus and gradual political change, the German political economy has adjusted poorly to the pressures of fiscal austerity and structural unemployment, creating pressures for an increasingly salient role for the federal government. The article provides a detailed analysis of recent German social-policy and labour-market reforms, arguing that existing literature is poorly equipped to account for this emerging policy-making paradigm. It also suggests that, while the German case illustrates the importance of institutional factors in shaping reform trajectories in advanced industrial democracies, careful attention must also be paid to élites' capacity for negotiating policy outcomes within these parameters.     

From “New Institutionalism” to “Institutional Processualism”: Advancing Knowledge about Public Management Policy Change

Research on public management reform has taken a decidedly disciplinary turn. Since the late 1990s, analytical issues are less often framed in terms of the New Public Management. As part of the disciplinary turn, much recent research on public management reform is highly influenced by the three new institutionalisms. However, these studies have implicitly been challenged by a competing research program on public management reform that is emphatically processual in its theoretical foundations. This article develops the challenge in a more explicit fashion. It provides a theoretical restatement of the competing “institutional processualist” research program and compares its substantive findings with those drawn from the neoinstitutionalisms. The implications of this debate about public management reform for comparative historical analysis and neoinstitutional theories are discussed.     

Understanding Mission Expansion in the Federal Home Loan Banks: A Return to Behavioral-Choice Theory

Congress established the Federal Home Loan Banks (FHLBs) in 1932 to pursue the public purpose of homeownership. Recently, three views of their mission have emerged; one is that their purpose is to help small banks to remain viable. Why did their mission expand in this direction? We argue that mission expansion is a process that is better understood in terms of behavioral choice than public choice. Change began when expert attention was directed to small banks in rural areas and officials innovated within the existing rules to address their needs. Recognizing the FHLBs' usefulness, community bankers sought a more fundamental change in their practice. Responding to the general interest in preserving small banks' viability, legislative entrepreneurs advanced permissive rule changes. These were implemented to different extents in individual FHLBs in response to local needs. The case illustrates the usefulness of the behavioral‐choice paradigm for understanding change in public agencies and suggests legitimacy for mission change and the value of maintaining publicly directed administrative capacity.     

Remaking the Italian party system: How Lijphart got it wrong by saying it right

Italy is in the midst of a major party system transformation. The process has been gradual, caused by the decline of the former Communist Party and by the rise of the Northern League which has eroded the ‘stable instability’ of the Christian Democrats' one‐party dominance. Yet the direction of change remains uncertain. On electoral grounds, the recently introduced majoritarian electoral law should encourage the formation of competing coalitions. However, this change is taking place just at a time when the awakening of long‐established territorial cleavages is endangering national unity. A majoritanian government for a divided country might turn out to be the worst of the unintended consequences of institutional reform.     

Gender equality in Germany: Comparing policy change across domains

Focusing on the past 25 years in three central arenas of political, social, and civil rights, this article engages in the current debate over policy change and the direction of German politics by analysing the issue of gender equality. Combining T.H. Marshall's concept of citizenship and Hall's analysis of policy change, I obtain a two-level framework that differentiates between policy changes and categorises reform in Germany in three different domains. The case studies are: quotas in political representation (political citizenship), women and reconciliation policy (social citizenship), and anti-discrimination policies (civil citizenship). Comparing policy change across domains demonstrates that change in these three arenas has occurred to different degrees and for different reasons; electoral competition has fostered policy change in representation, while the male-breadwinner model has slowed down reform for reconciliation of family and employment. A conservative affirmative action regime stands in opposition to individual anti-discrimination and limits potential change. This comparison across domains defines the dependent variable ‘policy change’ in a more nuanced way, helping to pinpoint and differentiate specific areas of reform.     

The Politics of Administrative Reforms in Asia: Paradigms and Legacies, Paths and Diversities

Many Asian governments have embarked on administrative reforms of one kind or another, engaging in rhetoric that resonates with the global paradigms of "new public management" and "good governance." This article seeks to understand Asian administrative reforms against the background of international influence, policy diffusion, domestic politics, institutional dynamics, and administrative traditions and legacies. It is impossible to capture the whole range of national reform types within any neat and tidy Asian paradigm, but some common strands of national reform paths in the region can still be traced. Different problems and failures are found to be addressed by Asian reforms, reflecting diverse motives and resulting in varied outcomes. The "old" public administration regime has largely coexisted with the "new" public management approaches and tools.     

THE CORPORATE MANAGEMENT FRAMEWORK AS ADMINISTRATIVE SCIENCE: A CRITIQUE

Abstract: A corporate management framework has been the basis for a transformation of Australian public administration in recent years. Program budgeting, corporate planning, performance contracts, program evaluation and new forms of efficiency scrutiny are among the techniques introduced. They stem from a dominant paradigm of technical and instrumental rationality, within which a framework of practical remedies and technologies of power carries the corporate management label. Four concepts underly this framework and its techniques: the product format, instrumentalism, integration and purposive action. The framework has fundamental problems. The product format is inappropriate for many public services and overvalues quantifiable, single-purpose outputs while denigrating claims of worth and effectiveness made on non-economic grounds; instrumentalism ignores the political dimensions of public organisations; integration denies the value of decentralised forms of service development and delivery and, paradoxically, contradicts current private management precepts; and purposive action displays an unwarranted optimism about the potency of technical rationality under central direction. The four principles must be reviewed as offering few prospects for genuine and lasting reform.     

How New Economic Ideas Changed the Danish Welfare State: The Case of Neoliberal Ideas and Highly Organized Social Democratic Interests

The article argues that new economic ideas have exerted an independent causal effect on policy change in three major areas in the Danish welfare state: unemployment insurance, early retirement, and taxation. Thereby the Danish case bears resemblance to the paradigmatic shift from Keynesianism to monetarism in the United Kingdom. However, in the Danish case this paradigmatic shift did not coincide with a political shift to a right-wing government. This makes it possible to disentangle the intimate relationship between ideas and interests. It is argued that the Danish case provides one of the clearest examples of the independent causal effects of economic ideas because the Social Democrats pursued policies that compromised with the party's historically rooted positions and with the preferences of their electorate. Ideas and solutions did not come in one fixed package, however. But the new paradigm established some basic premises that were not up for discussion.     

Contesting power, trust and legitimacy in the South African e-waste transition

Socio-technical transition theory is increasingly being used in research and practice to explain and guide transitions toward sustainability. Although recognizing the coevolution of technology and society, multi-scalar influences, and complex social processes, transition theory has thus far inadequately accounted for the role of power and in shaping transitions. This study uses the example of the transition-in-progress toward more sustainable e-waste practices in South Africa as one illustration of how power shapes the successes, failures, and direction of transitions. I look specifically at three transition arenas that are competing for legitimacy to guide the South African e-waste transition and show how their history, membership, and rules of participation shape the different pathways promoted by these organizations. In the South African case, vested interests and constraints on participation resulted in the splintering of original transition arena. While socio-technical transition theory suggests the importance of different competing niche experiments, in this case, different pathways are being promoted by different coalitions of actors through different arenas. The presence of multiple arenas and pathways has divided resources, created confusion, and arguably delayed the transition. Further, the scope for participation in these organizations differs, and this has implications for the redistribution of power. I suggest the need to more carefully consider the role of power, trust, and legitimacy within socio-technical transition theory and specifically within the transition arena. Importantly, analyzing the transition arena as a site of contestation over the distribution of costs and benefits of the particular pathway will enhance socio-technical transition theory’s explanatory power regarding how and why particular outcomes emerge.     

What drives public acceptance of reforms? Longitudinal evidence from a Dutch pension reform

Governments often find it hard to pursue economic reforms, even if they eventually will benefit a majority of voters. The literature remains inconclusive about the reasons for this. Some scholars, on the one hand, stress the role of distributional conflicts between different classes, for instance dividing the young and the old in the case of pay-as-you-go pensions. Others have highlighted that resistance to reform is rather broad-based owing to the public’s poor understanding of the need for reform. This paper attempts to disentangle the drivers of public acceptance of reform by means of a case study: the 2012 increase of the Dutch statutory retirement age from 65 to 67. We exploit a unique longitudinal dataset on the attitudes of Dutch households respecting pension reform in the 2003–2013 period. Our findings offer various new insights. First, we find that education, occupational status and psychological traits were the most systematic drivers of reform preferences, while age had a limited impact. Second, and significantly, we find that the year fixed effects were the main drivers of respondents’ acceptance of reform. We interpret the pattern of the year coefficients as evidence of a collective learning process whereby households gradually updated their expectations and reform preferences in light of new information.     

新中国70年机关事务治理的制度变迁:一项历史制度主义的考察

机关事务治理制度是国家治理体系的一项重要内容,有机融汇于新中国成立70年来的历史叙事之中。如何理解我国机关事务治理制度的历史变迁,是影响国家治理体系和治理能力现代化的一个重要命题。我国的机关事务治理从以"后勤服务"为主要表现形态的传统机关事务管理向以"运行保障"为主要表现形态的现代机关事务治理转型,经历了雏形渐成、改革发展、深化改革三次重大的制度变迁。基于历史制度主义的分析范式,机关事务治理制度变迁过程中制度背景、政治变量、路径依赖和关键节点的"混合体"模式深刻影响着机关事务治理制度的变迁历程,国家治理范式下的政治、经济、文化、社会因素则是制度变迁的动力所在。展望未来,机关事务治理现代化要正视新时代赋予的新要求,加强制度创新消解路径依赖逆向张力,推进机关事务治理职能法定化,完善多元协同的机关事务治理模式,从而推进新时代机关事务工作高质量发展。     

PLATEAUS NOT SUMMITS: REFORMING PUBLIC FINANCIAL MANAGEMENT IN AFRICA

Successful public sector reform is rare in Africa. Over 12 years, Ethiopia transformed its public financial management (PFM) to international standards and now has the third best system in Africa that is managing the largest aid flows to the continent. This article presents a framework for understanding PFM reform based on the Ethiopian experience. Reforms succeed when they are aligned with the four drivers of public sector reform: context, ownership, purpose, and strategy. PFM is a core function of the state and its sovereignty, and it is not an appropriate arena for foreign aid intervention—governments must fully own it, which was a key to the success of Ethiopia's reform. The purpose of PFM reform should be building stable and sustainable “plateaus” of PFM that are appropriate to the local context, and they should not be about risky and irrelevant “summits” of international best practice. Plateaus, not summits, are needed in Africa. Finally, a strategy of reform has four tasks: recognize, improve, change, and sustain. Ethiopia succeeded because it implemented a recognize–improve–sustain strategy to support the government policy of rapid decentralization. All too often, much of the PFM reform in Africa is about the change task and climbing financial summits. Copyright © 2011 John Wiley & Sons, Ltd.     

Virtual Government: What Will Remain Inside the Public Sector?

Around the world, the public sector is changing in ways which challenge the Weberian or bureaucratic paradigm. If we are to comprehend these changes, we must abandon the binary model of public and private sectors and better understand the non-state public sector. Looking to historical and international examples, this article asks what has to remain inside the state. While acknowledging that there are significant drivers for reform, it argues that the size of government — large or small — should not be a matter of ideology.     

Are public organizations suffering from repetitive change injury? A panel study of the damaging effect of intense reform sequences

In the last decade, reforms in the public sector have been implemented at an ever‐increasing pace. Hereby, organizations are repetitively subject to mergers, splits, absorptions, or secessions of units; the adoption of new tasks; changes in legal status; and other structural reforms. Although evidence is largely missing in the literature, there is a growing belief that such intense reform sequences may be damaging to organizations. This article aims to fill this gap in the literature by empirically examining the existence of such repetitive change injury for public organizations. To do so, we employ organizational absenteeism rates as an indicator for repetitive change injury and link this to the reform sequences an organization experienced. Results indicate that intense reform sequences disproportionally increase organizational absenteeism rates, supporting the existence of repetitive change injury and suggesting that reforms remain rooted in organizational memories for a longer time than is often assumed.     

Governance Reform in Thailand: Questionable Assumptions, Uncertain Outcomes

This article examines the nature of governance reform in Thailand. The argument is that Thai citizens are not especially benefiting from the public reform initiatives of Thai governments because government reformers made fourquestionable assumptions about reform which have in turn produced uncertain outcomes and provided the opportunity for government reformers to avoid responsibility for their reform choices. First, the reformers support the belief that a global reform paradigm with ready-made reform packages exists which can be easily transplanted in the Thai public sector. Second, the reformers prefer to define success largely as reform output rather than reform outcomes or long term reform consequences. Third, Thai government reformers have overemphasized the efficiency aspects of the new public management at the expense of other governance goals. Fourth, governance reform in Thailand has been portrayed as a managerial problem instead of a political one. The author supports his arguments by drawing on theoretical debates in the international literature on administrative reform, and relating these debates to the Thai case. Governance reform in Thailand is still at an early stage, but the role of unintended consequences is important to administrative reform. Furthermore, the Thai case may reflect governance reform in other countries as well.     

Leading Change in Local Government: The Tension between Evolutionary and Frame–breaking Reform in NSW

As a result of changing legislation the role of general managers in Australian local government is being transformed from administrative compliance to proactive managerial direction. They are expected to possess leadership, visionary and other change management skills not previously exercised in local government. This paper analyses how the general managers of four councils in Sydney have attempted to lead their respective organisations through their reform agendas. The four councils represented two comparison groups at each extreme of a change continuum ranging from evolutionary to frame–breaking change. Data collected from the four councils since 1994 used personal interviews, participant observation and analysis of documentation. The paper tracks the evolutionary and framebreaking reform, paying particular attention to the role, personality and leadership styles of the general managers. Emergent themes are identified and analysed as they relate to the impact of the general manager on the type of reform processes adopted.     

The politics of Artificial Intelligence regulation and governance reform in the European Union

This paper explores political drivers and policy process of the reform of the framework for Artificial Intelligence regulation and governance in the European Union (EU). Since 2017, the EU has been developing an integrated policy to tighten control and to ensure consumer protection and fundamental rights. This policy reform is theoretically interesting, raising the question of which conceptual approaches better explain it, and it is also empirically relevant, addressing the link between risk regulation and digital market integration in Europe. This paper explores the policy reform mainly by using two case study methods—process tracing and congruence procedure—using a variety of primary and secondary sources. It evaluates the analytical leverage of three theoretical frameworks and a set of derived testable hypotheses concerning the co-evolution of global economic competition, institutional structure, and policy preferences of domestic actors in shaping incremental approach to AI regulation in the EU. It is argued that all three are key drivers shaping the reform and explain the various stages of the policymaking process, namely problem definition, agenda-setting, and decision-making, as well as the main features of the outcome.

     

Public sector reform in a poor,aid‐dependent country,Tanzania

African public sectors went through many changes during the 1960s and 1970s in response to political, economic and social pressures. They expanded in size but remained, at least in design, hierarchical and centralized. Their formal relations to society did not undergo any significant changes either. Generally, the reforms now under way are significantly different from earlier ones. Most are inspired by the new public management (NPM) paradigm. They are also much more radical in their aims, among which are: to reduce the core functions of the state; redraw the boundaries between political and administrative responsibilities; emphasize efficiency; redefine relations between public and private sectors; strengthen accountability; reduce corruption; reorganize organizations and staff; change values and attitudes; and exploit new technologies. This article focuses on a paradox of reform in Tanzania: multiple changes are pursued in the public sector despite fragile domestic political support to the reform package as a whole and despite few service delivery improvements on the ground. It is argued that this is the result of substantial external influences, fragmented domestic policy making, weak links between policy making and implementation, and questionable assumptions about some of the key NPM‐inspired reform measures. Moreover, the analyses highlight a number of differences with some of the recent reform literature. Copyright © 2000 John Wiley & Sons, Ltd.