Challenges to State Policy Capacity

Challenges to State Policy Capacity

Also by Martin Painter COLLABORATIVE FEDERALISM STEERING THE MODERN STATE THE PRINCIPAL CLUB: A History of the Australian Jockey Club (with Richard Waterhouse) POLITICS BETWEEN DEPARTMENTS (with Bernard Carey) MANAGERIALISM AND ITS CRITICS (co-editor with Mark Considine) MICROECONOMIC REFORM AND FEDERALISM (co-editor with Peter Carroll) REFORM AND REVERSAL (co-editor with Martin Laffin) Also by Jon Pierre DEBATING GOVERNANCE (editor) PARTNERSHIPS IN URBAN GOVERNANCE (editor) POLITICIZATION OF THE CIVIL SERVICE IN COMPARATIVE PERSPECTIVE (co-editor with B. Guy Peters) HANDBOOK OF PUBLIC ADMINISTRATION (co-editor with B. Guy Peters) POLITICIANS, BUREAUCRATS AND ADMINISTRATIVE REFORM (co-editor with B. Guy Peters) GOVERNANCE, POLITICS AND THE STATE (with B. Guy Peters) GOVERNING COMPLEX SOCIETIES (with B. Guy Peters)

Challenges to State Policy Capacity Global Trends and Comparative Perspectives Edited by Martin Painter Professor of Public and Social Administration City University of Hong Kong and Jon Pierre Professor of Political Science Department of Government University of Gothenburg, Sweden

Editorial matter and selection Martin Painter and Jon Pierre 2005 Chapters 1 13 Palgrave Macmillan Ltd 2005 Softcover reprint of the hardcover 1st edition 2005 978-1-4039-3583-0 All rights reserved. No reproduction, copy or transmission of this publication may be made without written permission. No paragraph of this publication may be reproduced, copied or transmitted save with written permission or in accordance with the provisions of the Copyright, Designs and Patents Act 1988, or under the terms of any licence permitting limited copying issued by the Copyright Licensing Agency, 90 Tottenham Court Road, London W1T 4LP. Any person who does any unauthorized act in relation to this publication may be liable to criminal prosecution and civil claims for damages. The authors have asserted their rights to be identified as the authors of this work in accordance with the Copyright, Designs and Patents Act 1988. First published 2005 by PALGRAVE MACMILLAN Houndmills, Basingstoke, Hampshire RG21 6XS and 175 Fifth Avenue, New York, N.Y. 10010 Companies and representatives throughout the world PALGRAVE MACMILLAN is the global academic imprint of the Palgrave Macmillan division of St. Martin s Press, LLC and of Palgrave Macmillan Ltd. Macmillan is a registered trademark in the United States, United Kingdom and other countries. Palgrave is a registered trademark in the European Union and other countries. ISBN 978-1-349-51825-8 ISBN 978-0-230-52419-4 (ebook) DOI 10.1057/9780230524194 This book is printed on paper suitable for recycling and made from fully managed and sustained forest sources. A catalogue record for this book is available from the British Library. Library of Congress Cataloging-in-Publication Data Challenges to state policy capacity : global trends and comparative perspectives / edited by Martin Painter and Jon Pierre. p. cm. Includes bibliographical references and index. 1. Public administration. 2. Comparative government. 3. Urban policy. 4. Globalization Political aspects. I. Painter, Martin, 1947 II. Pierre, Jon. JF1351.C377 2004 351 dc22 2004056074 10 9 8 7 6 5 4 3 2 1 14 13 12 11 10 09 08 07 06 05

Contents Notes on the Contributors Acknowledgements vii ix 1 Unpacking Policy Capacity: Issues and Themes 1 Martin Painter and Jon Pierre 2 Capacity Beyond the Boundary: New Regulatory State, Fragmentation and Relational Capacity 19 Kanishka Jayasuriya 3 Swings and Roundabouts? Multilevel Governance as a Source of and Constraint on Policy Capacity 38 B. Guy Peters and Jon Pierre 4 The Europeanization of National Policy Capacities 52 Christoph Knill 5 Policy Instruments and Policy Capacity 73 B. Guy Peters 6 Machinery of Government and Policy Capacity: The Effects of Specialization and Coordination 92 Koen Verhoest and Geert Bouckaert 7 Ministries and Agencies: Steering, Meddling, Neglect and Dependency 112 Christopher Pollitt 8 Autonomization and Policy Capacity: The Dilemmas and Challenges Facing Political Executives 137 Tom Christensen and Per Lægreid 9 Policy-Making Reforms and Civil Service Systems: An Exploration of Agendas and Consequences 164 Marleen Brans and Diederik Vancoppenolle 10 Public Service Reform and Policy Capacity: Recruiting and Retaining the Best and the Brightest 185 Peter Aucoin and Herman Bakvis v

vi Contents 11 Policy Capacity and Citizens Attitudes: Developmentalism in Nine Asian States 205 Ian Marsh 12 State Capacity in Hong Kong, Singapore and Taiwan: Coping with Legitimation, Integration and Performance 225 Anthony B. L. Cheung 13 Conclusions: Challenges to Policy Capacity 255 Martin Painter and Jon Pierre Index 263

Notes on the Contributors Peter Aucoin is the Eric Dennis Memorial Professor of Government and Political Science and Professor of Public Administration, Dalhousie University, Halifax, Canada. Herman Bakvis is Professor of Political Science and Public Administration and Director of the School of Public Administration at Dalhousie University, Halifax, Canada. Geert Bouckaert is Professor of Public Management and Director of the Public Management Institute at the Katholieke Universiteit Leuven, Belgium. Marlene Brans is Assistant Professor, Public Management Institute at the Katholieke Universiteit Leuven, Belgium. Anthony B. L. Cheung is Professor, Department of Public and Social Administration at City University of Hong Kong, Hong Kong SAR, China. Tom Christensen is Professor of Political Science at the University of Oslo, Norway. Kanishka Jayasuriya is Principal Senior Research Fellow, Asia Research Centre at Murdoch University Perth, Australia. Christoph Knill is Professor of Comparative Public Policy and Administration, Department of Politics and Management at the University of Konstanz, Germany. Per Lægreid is Professor in the Department of Administration and Organization Theory, University of Bergen, Norway. Ian Marsh is Senior Fellow, Political Science Program, Research School of Social Sciences, The Australian National University, Canberra, Australia. Martin Painter is Professor in the Department of Public and Social Administration at City University of Hong Kong, Hong Kong SAR, China. B. Guy Peters is Maurice Falk Professor of American Government, Department of Political Science at the University of Pittsburgh, USA. vii

viii Notes on the Contributors Jon Pierre is Professor in the Department of Political Science at the University of Gothenburg, Sweden. Christopher Pollitt is Professor of Public Management at Erasmus University, Rotterdam, The Netherlands. Diderik Vancoppenolle is a researcher at the Public Management Institute, Katholieke Universiteit Leuven, Belgium. Koen Verhoest is a researcher at the Public Management Institute, Katholieke Universiteit Leuven, Belgium.

Acknowledgements A research project like the one leading up to this volume relies on the support and benevolence of a large number of people and institutions. The contributors, discouraged to visit Hong Kong in the spring of 2003 due to the outbreak of the SARS problem, kindly agreed to reschedule the Workshop to the autumn of the same year. They also revised the first drafts swiftly and professionally, helping us to produce a coherent set of chapters. We are most grateful for their involvement in this project. We would like to thank the Governance in Asia Research Centre, City University of Hong Kong, for its financial and administrative support throughout the project. Lo Oi-Yu provided unstinting and exemplary organizational and logistic support leading up to and during the October 2003 Workshop. We also thank the Faculty of Humanities and Social Sciences at the City University of Hong Kong for facilitating Jon Pierre s visiting professorship in 2003. Support for research on issues of policy capacity was provided to Martin Painter under City University of Hong Kong Project Grants 7001376 and 7001401. Hong Kong and Gothenburg MARTIN PAINTER JON PIERRE ix