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Institute
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Many European municipalities rely on municipally owned corporations (MOCs) to serve the public interest. Some MOCs, e.g. utilities or hospitals, are also aimed at generating financial revenue, others provide funded services like public transportation. Our article explores local governments’ approaches to the managerial control of influential MOCs. To conceptualize control, we distinguish control mechanisms (e.g. output control), correlates (e.g. policy-profession conflict), and perceived managerial autonomy. Drawing on a sample of 243 MOC top managers in Germany, structural equation modelling reveals four complex relationships between output control, process control, supervisor trust, and policy-profession conflict as antecedents of perceived managerial autonomy.
Arend Lijphart uses an average of five standardized variables – the executive-parties dimension (EPD) – to describe patterns of democracy and explain differences in democracies’ performance. The article suggests ways to improve the descriptive part of the project. It argues that the EPD maps different approaches to achieving accountability and representation, rather than differences in consensus. This re-conceptualization leads to a more coherent and valid measurement. It is also argued that more systematic adjustments are needed for differences in constitutional structures (presidentialism and bicameralism). The article presents data on a revised EPD and its components for 36 democracies in the period from 1981 to 2010. As to the explanatory part of the project, we contend that the EPD often hinders adequate causal analysis rather than facilitating it. We show this by re-analysing democracies’ performance with respect to turnout and capital punishment.
Die Erzählungen der Energiewende: Erzählungen beherrschen die Interpretation des politischen Geschehens mehr als formal und methodisch strenge Argumentationsketten. Dies gilt insbesondere für Demokratien. In Demokratien gilt es zu überzeugen und auch zu überreden, um Macht zu erhalten, Macht zu sichern oder Akzeptanz für bestimmte politische Vorhaben zu generieren. Diese simple Feststellung lässt zwei Schlüsse für eine transformativ ausgerichtete Politikwissenschaft zu. Erstens können transformative Narrative produziert werden, die das Auftreten von ökologisch, sozial, ökonomisch und kulturell nachhaltigem wahrscheinlicher machen, Zweitens können die Narrative von nachhaltiger wie nicht-nachhaltiger Transformation analysiert werden. Beiden Aufgaben widmet sich die Dissertationsschrift. Dabei werden für den transformativen Teil ethnografisch erhobene Daten zu fünf transformativen Narrativen verdichtet, die Vorwärts- und Vorbildcharakter haben. In den fünf Aufsätzen wurde auf Diversität zwischen den beschriebenen Protagonisten geachtet, sodass eine breite Leser*innenschaft angesprochen wird. Im analytischen Part wird in einem Aufsatz über diese Vorgehen reflektiert und die Form beschrieben durch die transformative Narrative Wirksamkeit entfalten. Dabei gilt immer, dass die Wissenschaft keine Narrative selbst setzt, sondern mittels nachvollziehbarer Methoden Daten zum Sprechen bringt. Dies ist unter review-Bedingungen gelungen. Neben eines Einsatz von Narrativen in Fragen der Gestaltung der neu entstandenen und weiter entstehenden Energielandschaften behandelt diese Dissertationsschrift a, diskursstrangorientierte als auch institutionsorientierte Erzählungen über die Energiewende. Dabei wurden diskursstrangorientiert die unterschiedlichen Erzählungen der und über energieintensive Unternehmen bezüglich der EEG-Umlage untersucht und kategorisiert und die Metaphern der Energiewende im Magazin DER SPIEGEL erhoben und analysiert. Institutionsorientiert wurde die Energiewendeerzählung der Partei `Alternative für Deutschland´, die Bildsprache des Wirtschaftsministeriums an Hand eines Beispiels sowie die Nachhaltigkeitserzählungen der Zukunftsinstitut GmbH. Schließlich wird nach messbaren Folgen des Nachhaltigkeitsnarrativs in drei Regionen des Rhein-Maas-Gebiets gefragt, was die Arbeit abrunden soll.
This open access book presents a topical, comprehensive and differentiated analysis of Germany's public administration and reforms. It provides an overview on key elements of German public administration at the federal, Länder and local levels of government as well as on current reform activities of the public sector. It examines the key institutional features of German public administration; the changing relationships between public administration, society and the private sector; the administrative reforms at different levels of the federal system and numerous sectors; and new challenges and modernization approaches like digitalization, Open Government and Better Regulation. Each chapter offers a combination of descriptive information and problem-oriented analysis, presenting key topical issues in Germany which are relevant to an international readership.
Federal Administration
(2021)
The federal administration is significantly small (around 10 percent of all public employees). This speciality of the German administrative system is based on the division of responsibilities: the central (federal) level drafts and adopts most of the laws and public programmes, and the state level (together with the municipal level) implements them. The administration of the federal level comprises the ministries, subordinated agencies for special and selected operational tasks (e.g. the authorisation of drugs, information security and registration of refugees) in distinct administrative sectors (e.g. foreign service, armed forces and federal police). The capacity for preparing and monitoring government bills and statutory instruments is well developed. Moreover, the instruments and tools of coordination are exemplary compared with other countries, although the recent digital turn has been adopted less advanced than elsewhere.
This chapter describes the most prominent public management reform trajectories in German public administration over the past decades since unification. In the 1990s, the New Steering Model emerged as a German variant of the NPM. Since the mid-2000s, local governments in Germany have been subjected to a mandatory reform of their budgeting and accounting system known as the New Municipal Financial Management reforms. Both reforms have led to a substantial change in terms of internal decentralisation, customer orientation, transparency in resource use and the financial situation of administrative bodies. But the emerging reform patterns and their impacts have not replaced the dominance of a strong legalist culture with hierarchical, centralised control. However, in the course of the reforms, a citizen-customer perspective, more participation of citizens and limited application of new management instruments have been accommodated within the persisting bureaucratic system.
Over the last decades, Better Regulation has become a major reform topic at the federal and—in some cases—also at the Länder level. Although the debate about improving regulatory quality and reducing unnecessary burdens created by bureaucracy and red tape date back to the 1960s and 1970s, the introduction by law in 2006 of a new independent institutionalised body for regulatory control at the federal level of government has brought a new quality to the discourse and practice of Better Regulation in Germany. This chapter introduces the basic features of the legislative process at the federal level in Germany, addresses the issue of Better Regulation and outlines the role of the National Regulatory Control Council (Nationaler Normenkontrollrat—NKR) as a ‘watchdog’ for compliance costs, red tape and regulatory impacts.
Although German bureaucracy is typically categorised as Weberian, a clear distinction between politics and administration has never been a defining characteristic of the German political-administrative system. Many close interrelations and interactions between elected politicians and appointed civil servants can be observed at all levels of administration. Higher-ranking civil servants in Germany are used to and generally appreciate the functional politicisation of their jobs, that is their close involvement in all stages of the policy process, from policy formation, goal definition, negotiation within and outside government to the implementation and evaluation of policies. For top positions, therefore, a class of ‘political civil servants’ is a special feature of the German system, and obtaining ‘political craft’ has become an important part of the learning and job experience of higher-ranking civil servants.
German Public Administration
(2021)
The international community of public administration and administrative sciences shows a great interest in the basic features of the German administrative system. The German public administration with its formative decentralisation (called: administrative federalism) is regarded as a prime example of multilevel governance and strong local self-government. Furthermore, over the past decades, the traditional profile of the German administrative system has significantly been reshaped and remoulded through reforms, processes of modernisation and the transformation process in East Germany. Studies on the German administrative system should focus especially on
key institutional features of public administration;
changing relationships between public administration, society and the private sector;
administrative reforms at different levels of the federal system; and
new challenges and modernisation approaches, such as digitalisation, open government and better regulation.
Human resource management (HRM) reform has not been the focus of attention in Germany despite its obvious relevance for effective policy implementation. Although there is a general trend worldwide towards convergence between public and private HRM strategies and practices, management of the workforce in German public administration still remains largely traditional and bureaucratic. This chapter describes and analyses German practices regarding the central functions and elements of HRM such as planning, recruitment, training and leadership. Furthermore, it explores the importance and contribution of public service motivation, performance-related pay and diversity management in the context of German practices. The chapter concludes by highlighting some of the major paradoxes of German public HRM in light of current challenges, such as demographic change, digital transformation and organisational development capabilities.
The chapter analyses recent reforms in the multilevel system of the Länder, specifically territorial, functional and structural reforms, which represent three of the most crucial and closely interconnected reform trajectories at the subnational level. It sheds light on the variety of reform approaches pursued in the different Länder and also highlights some factors that account for these differences. The transfer of state functions to local governments is addressed as well as the restructuring of Länder administrations (e.g. abolishment of the meso level of the Länder administration and of single-purpose state agencies) and the rescaling of territorial boundaries at county and municipal levels, including a brief review of the recently failed (territorial) reforms in Eastern Germany.
The German system of public sector employment (including civil servants and public employees) qualifies as a classical European continental civil service model moulded in traditional forms of a Weberian bureaucracy. Its features include a career-based employment system with entry based on levels of formal qualification. Coordinated by legal frames and centralised collective bargaining, the civil service is, at the same time, decentralised and flexible enough to accommodate regional differences and societal changes. In comparison, the civil service system stands out for its high degrees of professionalism and legal fairness with low levels of corruption or cronyism.
Face à l’urgence environnementale, l’innovation dans le domaine des nouvelles technologies de l’énergie (NTE) constitue un défi primordial. Les NTE constituent un marché concurrentiel en plein expansion, où s’affrontent dès à présent les acteurs de l’innovation internationale. La R&D énergétique représente donc pour l’Europe un défi multiple : Il s’agit de développer les technologies qui nous permettrons de réduire nos émissions de gaz à effet de serre et nos dépendances énergétiques. L’innovation produite devra également garantir la place de l’industrie européenne à la pointe du marché des NTE dans un contexte hautement compétitif. La collaboration franco-allemande en matière de R&D énergétique recèle ici un potentiel d’innovation disruptive particulièrement important, grâce à des paysages de R&D fortement complémentaires. Les programmes bilatéraux constituent un outil prometteur pour la valorisation des synergies inexploitées. En permettant la mise en place de partenariats franco-allemands restreints, autour de thématiques précises, ils constituent en effet un outil complémentaire aux programmes européens. Le Programme Inter Carnot-Fraunhofer (PICF) constitue un exemple abouti de programme bilatéral ayant permis la concrétisation de collaborations mutuellement bénéfiques dans le domaine des NTE, grâce à la mise au point d’une procédure harmonisée. Néanmoins, l’analyse du PICF montre également que les programmes bilatéraux franco-allemands devront prévoir la possibilité de financements-relai afin de pérenniser les échanges. Dans le contexte particulier des NTE, une extension aux projets de démonstration ainsi qu’un ciblage des sujets porteurs sur la base d’un comité consultatif scientifique indépendant paraissent indispensables. Ces efforts franco-allemands pourront servir de modèle à l’innovation de rupture basée sur la valorisation des synergies intra-européennes.
Balancing the Moods
(2018)
Quality management (QM) has spread around the world and reached higher education in Europe in the early 1990s (Mendel, 2006, 137; Kernegger and Vettori, 2013, 1). However, researchers were rather more interested in national quality assurance policies (macro-level) and accreditation systems (meso-level) than in intra-organizational perspectives about the day-to-day implementation of quality assurance policies by various actors (micro-level). Undoubtedly, organizational change is a challenging endeavor for all kinds of groups. On the one hand, it provides the opportunity of further development and innovation, but on the other hand, it exposes organizations and actors to the risk of losing established structures and accepted routines.
Like in many other organizations, actors may not necessarily perceive change as a promoter of innovation and development. Instead, they may consider change as a threat to the existing status quo or, as March points out, as an “interplay between rationality and foolishness” (March, 1981, 563). Consequently, change provokes either affective or behavioral actions (Armenakis and Bedeian, 1999, 308–310), such as, for example, resistance. Anderson (2006, 2008) and Lucas (2014) have shown, for example, that academic resistance is an important issue. However, Piderit characterizes resistance as a multidimensional construct (Piderit, 2000, 786–787) subject to a wide variety of issues related to quality and QM. Although QM has been described as a “fashion” (Stensaker, 2007, 101) in the higher education sector that provokes many different reactions, its implementation in higher education institutions (HEIs) is still a rather unexplored field. Thus, the evidence provided by Anderson (2006, 2008) and others (Newton, 2000, 2002; McInnis et al., 1995; Fredman and Doughney, 2012; Lucas, 2014; etc.) needs to be expanded, because they only consider the perspective of academia. In particular, the view of other actors during the implementation of quality assurance policies is a missing piece in this empirical puzzle. Nearly nothing is known about how quality managers deal with reactions to organizational change like resistance and obstruction. Until now, only a few studies have focused on intra-organizational dynamics (see, for example: Csizmadia et al., 2008; Lipnicka, 2016).
Besides the lack of research on the implementation of quality assurance policies in HEIs, quality managers seem to be an interesting subject for further investigations because they are “endogenous” to institutional processes. On the one hand, quality managers are the result of quality assurance policies, and on the other hand, they influence the implementation of quality assurance policies, which affect other actors (like academics, administrative staff, etc.). Here, quality managers, as members of an emerging higher education profession, are involved in various conflict lines between QM, HEI management and departments, which need further research (Seyfried and Pohlenz, 2018, 9).
Therefore, the aim of our paper is twofold: firstly, to answer the question of how quality managers perceive resistance, and secondly, which measures they take in situations of perceived resistance. We offer a new research perspective and argue that resistance is not merely provoked by organizational change; it also provokes counter-reactions by actors who are confronted with resistance. Thus, resistance seems to be rather endogenous.
To theorize our argument, we apply parts of the work of Christine Oliver (1991), which provides theoretical insights into strategic responses to institutional processes, ranging from acquiescence to manipulation (Oliver, 1991, 152). We, therefore, investigate the introduction of QM in teaching and learning, and the emergence of quality managers as higher education professionals as one of the results of quality assurance policies. Consequently, the introduction of QM may be considered as an institutional process provoking reactions and counter-reactions of various organizational units within HEIs. These circumstances are constitutive for how quality managers deal with resistance and other reactions toward organizational change. We use this theoretical framework to analyze the German higher education sector, because this particular case can be considered as a latecomer in New Public Management reforms (Schimank, 2005, 369) and Germany is a country where academic self-governance plays a very important role, and strongly influences academics’ behavior when it comes to organizational change (Wolter, 2004).
Our empirical results are based on a mixed-methods research design and integrate half-structured interviews and a nationwide survey at the central level in German HEIs, which excludes faculty members of QM (decentral level). They reveal that quality managers take different types of action when resistance occurs during the implementation of quality assurance policies. Furthermore, quality managers mainly react with different tactics. These tactics seem to be relevant for convincing academics and for the enhancement of their commitment to improve the quality of teaching and learning, instead of provoking further resistance or avoidance practices.
This article proceeds as follows: the next sections describe the context and explain our main theoretical concepts referring to the work of Oliver (1991) and others. After that, we present our case selection and the methodological framework, including the data sources and the operationalization of selected variables. Finally, we provide our empirical results about quality managers’ perceptions on resistance and we draw conclusions.
In this introductory chapter, the editors describe the main theoretical basis of analysis of this book and the methodological approach. The core of this book consists of 14 country-specific chapters, which allow a European comparison and show the increasing variance in migration policy approaches within and between European countries. The degree of local autonomy, the level of centralisation and the traditional forms of migration policy are factors that especially influence the possibilities for local authorities to formulate their own integration policies.
This chapter focuses on the relationship between public opinion on migration and its media coverage. Different explanatory models, including individual characteristics, cultural factors and the impact of media and politics, have been proposed to explain public attitudes towards migrants. Understanding the local context is important, as the shares of migrants living in each region and city vary considerably. Providing correct statistical information, stressing the diversity of current migration patterns in Europe and taking part in media and public discussions are ways in which to impact public attitudes at the local level.
The chapter begins with a brief historical overview of Germany’s transition in the twentieth and twenty-first century from a transit and emigration country to one of immigration. The next part of this chapter looks at the challenges and problems facing German immigration policy within a multi-level federal system. Finally, the chapter gives an analysis of some of the trends in German migration policy since the refugee crisis in 2015, such as changes in the party system and in the concepts underlying migration policies to better manage, control and limit immigration to Germany.
As expected, the traditions of national-state migration policies continue to play a very important role, path-dependence in this policy field remains high. The distribution of competences in migration policy and the integration of migrants in the nation states continues to be very different. When implementing integration strategies at grassroots level, the respective policies should be tailored to the profile of both the local migrant community and the native population. Besides better migration management in local administration and the interaction of top-down and bottom-up efforts to integrate migrants is of importance.