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Decentralizing for performance? A quantitative assessment of functional reforms in the German Lander
(2016)
In the last 10 years, the governments of most of the German Länder initiated administrative reforms. All of these ventures included the municipalization of substantial sets of tasks. As elsewhere, governments argue that service delivery by communes is more cost-efficient, effective and responsive. Empirical evidence to back these claims is inconsistent at best: a considerable number of case studies cast doubt on unconditionally positive appraisals. Decentralization effects seem to vary depending on the performance dimension and task considered. However, questions of generalizability arise as these findings have not yet been backed by more ‘objective’ archival data. We provide empirical evidence on decentralization effects for two different policy fields based on two studies. Thereby, the article presents alternative avenues for research on decentralization effects and matches the theoretical expectations on decentralization effects with more robust results. The analysis confirms that overly positive assertions concerning decentralization effects are only partially warranted. As previous case studies suggested, effects have to be looked at in a much more differentiated way, including starting conditions and distinguishing between the various relevant performance dimensions and policy fields.
In the last 10 years, the governments of most of the German Lander initiated administrative reforms. All of these ventures included the municipalization of substantial sets of tasks. As elsewhere, governments argue that service delivery by communes is more cost-efficient, effective and responsive. Empirical evidence to back these claims is inconsistent at best: a considerable number of case studies cast doubt on unconditionally positive appraisals. Decentralization effects seem to vary depending on the performance dimension and task considered. However, questions of generalizability arise as these findings have not yet been backed by more 'objective' archival data. We provide empirical evidence on decentralization effects for two different policy fields based on two studies. Thereby, the article presents alternative avenues for research on decentralization effects and matches the theoretical expectations on decentralization effects with more robust results. The analysis confirms that overly positive assertions concerning decentralization effects are only partially warranted. As previous case studies suggested, effects have to be looked at in a much more differentiated way, including starting conditions and distinguishing between the various relevant performance dimensions and policy fields.
Challenging Khmer citizenship : minorities, the state, and the international community in Cambodia
(2013)
The idea of a distinctly ‘liberal’ form of multiculturalism has emerged in the theory and practice of Western democracies and the international community has become actively engaged in its global dissemination via international norms and organizations. This thesis investigates the internationalization of minority rights, by exploring state-minority relations in Cambodia, in light of Will Kymlicka’s theory of multicultural citizenship. Based on extensive empirical research, the analysis explores the situation and aspirations of Cambodia’s ethnic Vietnamese, highland peoples, Muslim Cham, ethnic Chinese and Lao and the relationships between these groups and the state. All Cambodian regimes since independence have defined citizenship with reference to the ethnicity of the Khmer majority and have - often violently - enforced this conception through the assimilation of highland peoples and the Cham and the exclusion of ethnic Vietnamese and Chinese. Cambodia’s current constitution, too, defines citizenship ethnically. State-sponsored Khmerization systematically privileges members of the majority culture and marginalizes minority members politically, economically and socially. The thesis investigates various international initiatives aimed at promoting application of minority rights norms in Cambodia. It demonstrates that these initiatives have largely failed to accomplish a greater degree of compliance with international norms in practice. This failure can be explained by a number of factors, among them Cambodia’s neo-patrimonial political system, the geo-political fears of a ‘minoritized’ Khmer majority, the absence of effective regional security institutions, the lack of minority access to political decision-making, the significant differences between international and Cambodian conceptions of modern statehood and citizenship and the emergence of China as Cambodia’s most important bilateral donor and investor. Based on this analysis, the dissertation develops recommendations for a sequenced approach to minority rights promotion, with pragmatic, less ambitious shorter-term measures that work progressively towards achievement of international norms in the longer-term.
Under the influence of orientation towards European integration, Georgia has introduced a variety of new laws with the apparent aim to decentralize legislative and executive powers. This paper shows that the Georgian efforts of decentralization remain superficial, mainly because they are not backed by additional fiscal competences at the municipality level. Following an initial description of the pre-reform situation as of 2006 and based upon a detailed account of the structural changes since 2007, the author gives insight into the conflicts which arise from the lack of institutional congruency. Neither the extraordinary status of the capital Tbilisi nor the seeming autonomy of the Rebublic of Adjara are likely to sway the renegade territories of Abchasia and Ossetia towards a reintegration under Georgian centralized rule as it continues to exist today. Likewise, the success of the proposed and discussed fiscal equalization scheme depends on whether the President and his ruling party are willing to delegate powers to the subodinate jurisdictions.
Die internationale Staatengemeinschaft steht Sezessionsbestrebungen zur Aufspaltung bestehender Staaten gewöhnlich ablehnend gegenüber. Gleichzeitig wendet sie in vielen Ländern Instrumente der Entwicklungspolitik an und greift so auch in den dortigen politischen Prozess ein. Untersucht wird, inwiefern Entwicklungspolitik so gestaltet werden kann, dass sie nicht, quasi als Nebenwirkung, einer Sezessionsbewegung zum Durchbruch verhilft. Betrachtet wird dabei neben der gezielten Förderung wirtschaftlichen Wachstums auch das Instrument der Dezentralisierung, das oft als Mittel zur „Beruhigung“ separatistischer Bestrebungen vorgeschlagen wird. Zuvor jedoch wird aufgewiesen, dass eine Politik, die Sezessionen verhindern will, zumindest in vielen Fällen auch moralphilosophisch schlüssig begründet werden kann. Den Abschluss der Arbeit bilden drei Fallstudien zu Sezessionen auf dem Gebiet der ehemaligen Sowjetunion.
This paper analyzes fundamental shortcomings in the Georgian legal bases in both the constitution and the tax code with regard to a sustainable fiscal policy. It shows that the lack of experience with sharing political powers and competences among the administrative levels create centralizing tendencies, which are in sharp contrast to more recent laws on local selfgovernment. Having set the legal background of today’s administrative structure in Georgia, the paper continues to describe the country’s budget composition in terms of tax revenues and expenses since the year 2000. Following a brief discussion of the Georgian systems of transfers to subordinate administrative entities the paper concludes by naming essential reform steps that need to be taken towards the development of a functioning fiscal policy on all levels.
Several scholars concerned with global policy-making have recently pointed to a reconfiguration of authority in the area of climate politics. They have shown that various new carbon governance arrangements have emerged, which operate simultaneously at different governmental levels. However, despite the numerous descriptions and mapping exercises of these governance arrangements, we have little systematic knowledge on their workings within national jurisdictions, let alone about their impact on public-administrative systems in developing countries. Therefore, this article opens the black box of the nation-state and explores how and to what extent two different arrangements, that is, Transnational City Networks and Reducing Emissions from Deforestation and Forest Degradation, generate changes in the distribution of public authority in nation-states and their administrations. Building upon conceptual assumptions that the former is likely to lead to more decentralized, and the latter to more centralized policy-making, we provide insights from case studies in Indonesia, South Africa, Brazil, and India. In a nutshell, our analysis underscores that Transnational City Networks strengthen climate-related actions taken by cities without ultimately decentralizing climate policy-making. On the other hand, Reducing Emissions from Deforestation and Forest Degradation tends to reinforce the competencies of central governments, but apparently does not generate a recentralization of the forestry sector at large.
Purpose
This chapter is aimed at contributing to the question of how institutional reforms affect multi-level governance (MLG) capacities and thus the performance of public task fulfillment with a particular focus on the local level of government in England, France, and Germany.
Methodology/approach
Drawing on concepts of institutional evaluation, we analytically distinguish six dimensions of impact assessment: vertical coordination; horizontal coordination; efficiency/savings; effectiveness/quality; political accountability/democratic control; equity of service standards. Methodologically, we rely on document analysis and expert judgments that could be gleaned from case studies in the three countries and a comprehensive evaluation of the available secondary data in the respective national and local contexts.
Findings
Institutional reforms in the intergovernmental setting have exerted a significant influence on task fulfillment and the performance of service delivery. Irrespective of whether MLG practice corresponds to type I or type II, task devolution (decentralization/de-concentration) furthers the interlocal variation and makes the equity of service delivery shrink. There is a general tendency of improved horizontal/MLG type I coordination capacities, especially after political decentralization, less in the case of administrative decentralization. However, decentralization often entails considerable additional costs which sometimes overload local governments.
Research implications
The distinction between multi-purpose territorial organization/MLG I and single-purpose functional organization/MLG II provides a suitable analytical frame for institutional evaluation and impact assessment of reforms in the intergovernmental setting. Furthermore, comparative research into the relationship between MLG and institutional reforms is needed to reveal the explanatory power of intervening factors, such as the local budgetary and staff situation, local policy preferences, and political interests in conjunction with the salience of the transferred tasks.
Practical implications
The findings provide evidence on the causal relationship between specific types of (vertical) institutional reforms, performance, and task-related characteristics. Policy-makers and government actors may use this information when drafting institutional reform programs and determining the allocation of public tasks in the intergovernmental setting.
Social implications
In general, the euphoric expectations placed upon decentralization strategies in modern societies cannot straightforwardly be justified. Our findings show that any type of task transfer to lower levels of government exacerbates existing disparities or creates new ones. However, the integration of tasks within multi-functional, politically accountable local governments may help to improve MLG type I coordination in favor of local communities and territorially based societal actors, while the opposite may be said with regard to de-concentration and the strengthening of MLG type II coordination.
Originality/value
The chapter addresses a missing linkage in the existing MLG literature which has hitherto predominantly been focused on the political decision-making and on the implementation of reforms in the intergovernmental settings of European countries, whereas the impact of such reforms and of their consequences for MLG has remained largely ignored.
The study of subnational and local government systems and reforms has become an increasingly salient topic in comparative public administration. In many European countries, policy implementation, the execution of public tasks and the delivery of services to citizens are largely carried out by local governments, which, at the same time, have been subjected to multiple reforms and sometimes comprehensive institutional re-organizations. This chapter discusses analytical key concepts and outcomes of the comparative study of local governments and local government reforms. It outlines frameworks and analytical tools to capture the variety of institutional settings and developments at the local level of government. It provides an introduction into crucial comparative dimensions, such as functional, territorial and political profiles of local governments, and analyses current reform approaches and outcomes based on recent empirical findings. Finally, the chapter addresses salient issues to be taken up in future comparative studies about local government.
This article analyses the decentralization of the French welfare state focusing on the transfer of the Revenu minimum d’insertion (RMI) welfare benefit to the departments in 2003 and 2004. We map and explain the effects of the reform on the system and performance of the subnational provision of welfare tasks. To evaluate the impact of decentralization on the RMI-related action of the departments, we carry out a qualitative document analysis and use data from two case studies. The RMI decentralization offers an exemplary insight into the incremental implementation of French decentralization. We find many unintended effects in terms of the performance and outcome of the subnational welfare provision. This is traced back to the combining of institutional and policy reforms and the inadequate translation of high political expectations into an inadequate action programme both resulting in excessive demands on the local actors.
Points for practitioners
The decentralization of public tasks is associated with high expectations in terms of the effects on the performance of public services and public governance on the subnational levels. For an in-depth measure the range of administrative performance and political systems effects should be taken into account. We propose a five-dimensional scheme allowing for the determination of decentralization effects on the resource input to and the operative output of subnational public services, on the horizontal coordination between subnational task holders and the affected non-public stakeholders, on the vertical intergovernmental coordination, and on the democratic accountability of subnational authorities.