Metagovernance,political demand and policy advice: a case from Brazil

ABSTRACT

There has been a call for a “second wave” of scholarship on policy advice to expand our understanding of the relational dynamics within a policy advisory system (PAS). In this article, we use a case from Brazil to address two key gaps in the PAS literature – the lack of attention to systems of network governance and the current predominance of “Westminster” empirical cases. To better understand the impact of policy advice within a system of networked governance, we apply the frame of “metagovernance” – the steering of governance networks. We then introduce and employ the concepts of funnelling, political brokering and gate-keeping to better understand how policy advice is shaped, modified and then either rejected or accepted. The contribution of the article is that, while much of the existing PAS literature describes the contours and key actors within an advisory system, we develop new conceptual scaffolding to better understand the trajectories and impact of policy advice, and the interplay between actors and agents, within a broader system of metagovernance.     

Forced cooperation from above: the case of Sweden's establishment reform

In December 2010, significant parts of Swedish integration policy were changed. Through the ‘establishment reform’, a centralization was implemented in which the national level overtook the responsibility of municipalities for the establishment of newly arrived immigrants. In today's system, the responsibility is shared between several authorities, the municipalities, and publicly financed private actors. Recent governmental reports have described the current situation as being characterized by coordination problems and shortcomings in accountability. This policy creates an institutional landscape that spans both vertical and horizontal dimensions, reflecting several levels of the public administration and actors that originate from several sectors. The purpose of this article is to explore the governance of Swedish integration policy, with a theoretical focus derived from the ideal types of hierarchy, market, and network. We examine one Swedish region in which parts of the establishment reform were applied as a pilot project before being applied to the rest of Sweden. The theoretically driven results are unexpected in that they reveal traits of governance steering but also of top-down perspectives and restrictions for involved actors in a way that counteracts theoretical logics.     

Exploring the endogenous governance model for alleviating food insecurity: Comparative analysis of food bank systems in Korea and the USA

Food security is one of the dimensions in reducing poverty. Food bank governance is a key system for increasing food security. Even if thousands of food banks operate around the world by importing the standard US model, a universal standard of governance cannot always be applied to all countries, because actors, networks, and institutions embedded in unique social, economic, cultural, and political contexts retain endogenous properties. Hence, the governance model must reflect the endogeneity each society has. This article aims to theoretically suggest the endogenous governance model and to empirically demonstrate the validity of this model by comparing the governance of food banks in the USA and Korea. Although Korea introduced the US food bank model, the Korean model has been adapted and changed, evolving its own system. To find the difference in endogenous food bank governance between the two countries, we compared the variety of governance models, the institutional context, mode of network, actors' attributes, and time perspective.     

How social networks affect policy implementation: An analysis of street-level bureaucrats' performance regarding a health policy

Policy implementation is an interactive process between citizens and street-level bureaucrats. Although the literature has already addressed different factors that influence discretion, there is still a gap in understanding if and how bureaucrats' relational profiles affect policy implementation. This article analyses bureaucrats' interactions and the relational environments in which they exercise their discretion. The hypothesis is that bureaucrats' different relational profiles specify policy implementation at the street level. We study bureaucrats in a Brazilian health care programme involving community workers that requires regular visits to beneficiary families' homes. The research departs from ethnography and network analyses with workers from three very different contexts. We analyse bureaucrats' practices, the discursive styles mobilized in their interactions, and their personal networks. The results show that organizational factors are central to explain variations in practices, and their relational profiles highly influence the discursive styles used by bureaucrats in their interactions with citizens. The article concludes that relational elements can affect the exercise of discretion and influence interactions at the street level and should be incorporated more systematically in the implementation literature.     

Growth management in Maricopa County, 1988–1992: An application of Kindgon's agenda setting model

This is a case of growth management activities of Maricopa County, Arizona, the metropolitan-Phoenix area, between 1988 and 1992. It tests Kingdon's three stream model of agenda setting as an analytical approach to explaining the development of regional governance. Growth planning is a controversial topic in Maricopa County. The region contains numerous, fiercely independent local jurisdictions; competition between the private and public sectors for control of the growth planning process; and a growth-fueled economy. Some successes in regional growth planning occurred, but political forces constrained full regional governance. Longer term assessment of growth planning in Maricopa County needs to go beyond Kingdon's model and case study analysis.     

Linking taxation and social protection: Evidence on redistribution and poverty reduction in Ethiopia

Although redistribution results from the simultaneous effects of taxes and transfers, analyses of their distributional effects in low‐income countries have largely been undertaken from singular perspectives. This article jointly assesses the distributional effect of taxes and transfers (through social protection) using Ethiopia as a case study. We find that Ethiopia's flagship social protection programme is more effective than income taxation in achieving poverty reduction, while neither policy achieves a sizeable reduction in overall inequality. We also find that Ethiopia does not currently have the capacity to close the poverty gap or to fully fund its main safety net programme using domestic income sources alone.     

Semi‐conditional cash transfers in the form of family allowances for children and adolescents in the informal economy in Argentina

In 2009, Argentina introduced a new transfer programme for children and adolescents younger than age 18 (Universal Child Allowance) that extended coverage under the contributory programme for family allowances to include families in the informal economy and families of unemployed persons. This article describes this innovative programme, compares it with similar programmes in Latin America and analyses its impact on coverage and its possible effects on the welfare of the population. The results indicate that the extension of access to this type of benefit has reduced considerably the coverage gap for the poor and indigent and supports efforts to consolidate the operations of different and poorly coordinated transfer programmes.     

A new tool for urban governance or just rhetoric? The case of participatory budgeting in Taipei City

Increasing interest in participatory budgeting has been observed in local governments around the world. This paper stresses direct citizen participation in the budgeting process leads to good governance, deepens democracy and improves social justice, while also highlighting some challenges in its efficiency and effectiveness. Unlike participatory budgeting, the Sub-borough Chiefs Forum is a community-based representative democratic mechanism; it could be regarded as a form of participatory budgeting in a broad sense. If so, then did the Taipei programme simply duplicate the goals of the Forum or lead to a better governance by making up for the inadequacies of the Chiefs Forum? To find out whether the Taipei participatory budgeting programme made a difference, we carried out qualitative and quantitative comparisons of projects passed under the participatory budgeting process and at the Forum. We also interviewed several participatory budgeting participants and sub-borough chiefs. The findings suggested that participatory budgeting and the Forum generated different proposals and budget requests, and the Taipei programme supplemented the shortcomings of the Forum and therefore led to deeper civic engagement and better urban governance.     

Financing health services for pensioners in Argentina: a salutary tale

The article examines the problems facing a programme to finance health care for pensioners in Argentina, known as PAMI. The programme is accumulating large deficits and many of its services are of doubtful quality. PAMI's problems and its resistance to reforms are put in the wider context of Argentina's liberalised health-care system, neo-liberal adjustment and flawed governance. The Argentine experience has relevance for other developing countries with weak state regulatory capacity, and points to the dangers of delegating health financing of older people to the private sector.     

Global Governance and State Governance: Two Strategic Considerations in Contemporary China

Governance is a kind of holistic governance and the notion of governing holistically should be established. The holisticity of governance is reflected in the unity and coordination between value rationality and instrumental rationality, normative appeal and practical appeal as well as global governance and state governance. Global and state governances are two strategic considerations in contemporary China. Actively participating in global governance and rationally promoting state governance is the rational choice of contemporary China, which plays a unique and significant role in realizing the social transformation and national rejuvenation and modernization of contemporary China. Deepening state governance with the help of global governance and promoting global governance with the support of state governance is the basic idea and dimension of understanding and grasping the interaction, coordination and overall planning between the two. The restrictions and effects of global governance on state governance are mainly reflected in such considerations as objects, mechanisms, concepts and interests of governance, and modernization of state governance system and improvement of governance capacity can promote and deepen global governance in a more effective way.     

Linking macro‐level mechanisms to street‐level accountability practices. A cross‐national case study of street‐level accountability of social workers in government funded homeless shelters

Available studies on the accountability relation between social work and the government are mainly conducted in Anglo‐Saxion countries. This limits the generalizability of these findings to other countries. Moreover, these studies hardly descent to the street‐level, making the perceptions and actions of social workers barely visible. To address this gap, this article explores how three elements of governance interact with street‐level accountability of social workers in homeless care in three country cases (the Netherlands, Belgium and Germany). The data (N26) was gathered by means of a mixed method design (interviews, focus groups and document analysis). By combining a street‐level bureaucracy research approach with a relational definition of accountability, we opened up the black box of what happens in these organizations and bridged the gap between macro‐level mechanisms and street‐level accountability. Our study adds three important insights to street‐level research of accountability in social work. First, elements of governance cannot be studied in isolation. Mechanisms should always be explained in relation to the context in which they are embedded. Second, the social workers in our cases do not perceive their accountability to the government as a professional obligation. They see it as a strategic mechanism to secure funding. Third, interaction is an important condition for the engagement of the social workers in their accountability relation with the government. More research is needed to develop a multi‐level theory that identifies which mechanisms play a role in the accountability relation between the government and social workers.     

Islam, Social Traditions and Family Planning

This article explores the doctrine of Islam and the different theological interpretations of the position of Islam about family planning in Saudi Arabia, Egypt, Iran and Jordan, following the Sunni and Shia traditions. Principles that led to fatwas (rulings) in both these theological traditions, together with the main arguments of the debate between the proponents and opponents of family planning in Islam and the Higher Judge's interpretation (Islamic Courts in Jordan) of the position of Islam on family planning, are included. Men's and women's views are summarized, based on the findings of natural group discussions and in‐depth interviews conducted in 1998 with couples and individuals within their social networks in the different contexts in Jordan. Based on a gap analysis between doctrine, policy and people's beliefs, this study shows a need for family planning programmes to address men and women in a culturally sensitive manner: Men shape reproductive decisions. It is therefore argued that if men were more pro‐actively involved in family‐planning awareness campaigns, there might be a transformation of values and perceptions around fertility and family planning. Another conclusion drawn from the findings is that local resources, especially religious men, can be instrumental in promoting political trust in—and a sense of ownership of—family planning programmes in Jordan. Using local resources in advocacy for family planning, based on the cultural context of Shari’ah, seems effective in changing the reproductive behaviour of men.     

Are good governance principles institutionalised with policy transfer? An examination of public–private partnerships policy promotion in China

This article explores the following question: To what extent are good governance principles being institutionalised in China as a result of public–private partnerships (PPP) policy transfer? Since 2013, China has been pursuing PPP and applying aspects of related good governance drawing from Western experience despite its radically different fragmented authoritarian regime. This makes China a unique case to observe the extent to which good governance principles can be institutionalised in very different contexts. This article assesses the degree of institutionalisation of three good governance principles that guide PPP policy elsewhere: transparency and accountability, willingness to collaborate and equity between partners. It argues that while the PPP policies have been applied extensively in recent years, these good governance principles have been institutionalised to varying degrees as they have had to be adapted and compromised to fit with existing power relations in authoritarian China. The findings aim to add value to the literature regarding PPP policy transfer and good governance, by revealing the challenges of institutionalising good governance principles through PPP policy transfer in an alien context.     

气候变化条件下海洋环境治理的跨制度合作机制可能性研究

气候变化给全球福利带来的负面冲击日益显现且有恶化之势。海洋对气候的调节作用促使人们深度挖掘海洋治理对人类减缓与适应气候变化的潜在功能。《联合国海洋法公约》为气候变化与海洋治理的制度沟通架起了桥梁,在气候变化的巨大冲击下海洋治理应当走跨制度合作之路。     

A social stakeholder model

Corporate governance is a concept that attracted the attention of jurists and economists in the US in the 1970s and 1980s. The concept then became widespread on the European continent in the 1990s. More recently, corporate governance elements have turned up in other fields as well. When applied to social institutions, this model is referred to as 'social governance'. The (corporate) governance concept can be valuable in the social area. The debate on corporate governance is much more fundamental than the debate on the relationship between shareholders and management or between minority and majority shareholders. The essence of corporate governance can be found in the pursuit of a situation of 'checks and balances', which gives the stakeholders the possibility to complement and control each other. This article analyses the different stakeholders in the social area, their legitimisation as stakeholders and the practicability of a social stakeholder model.     

Social conflict within and between groups by De Dreu,C. K. (Ed.)

This article identifies pregroup planning-the thinking and preparation done by the social worker in developing a group program-as a neglected area of social work practice. Though the importance of planning is recognized by many writers, little is said about the planning process itself that can help direct and guide the thinking of the social work practitioner. Possible reasons for this gap in our literature and practice are presented. Development of a model of planning for group practice is called for. Components of such a model are drawn from social work writings on work with groups and from research, and a tentative model is suggested.     

Local Participatory Democracy in Britain's Health Service: Innovation or Fragmentation of a Universal Citizenship?

A political emphasis upon the devolution of governance and management in the British National Health Service has, since 1997, been paralleled by an apparent concern to reinvigorate patient and public involvement in aspects of planning and decision‐making. A quasi‐communitarian rhetoric and echoes of nineteenth‐century welfare mutualism have accompanied significant reform of arrangements for patient and public involvement. This article considers the degree to which this fusion of normative exhortation and structural reform heralds a marked evolution in the principles and practice of participatory democracy in the planning and governance of health care. The reforms, in historical perspective, appear to constitute a significant extension of the arenas within which citizens can explore and debate issues pertaining to the health service. But selective political recourse to quasi‐communitarian sentiment points to an embryonic policy discourse that links entitlements to obligations on the part of those reliant on the NHS. This may be of considerable significance in a system of health care to which entitlement has, historically, been cast as a right of citizenship.     

Can Quasi‐market and Multi‐level Governance Co‐exist? Insights from the Case of Lombardy's Employment Services System

This article explores the functioning of Lombardy's networked employment services system, inspired by quasi‐market and horizontal subsidiarity principles, and specifically addresses a gap in the quasi‐market literature, where little attention is devoted to the role played by institutions at lower levels of government. A qualitative study of the Lombardy system, with a focus on the municipality of Milan, is relied upon in order to explore the extent to which the principles of quasi‐market and multi‐level governance pursued by the regional government are allowed to co‐exist in practice. Here, sub‐regional levels of government are directly involved in services provision, but enjoy a more privileged condition relative to the private providers, thereby jeopardizing the implementation of an effective quasi‐market. The article contributes to existing theories by suggesting that horizontal subsidiarity and marketization cannot neglect multi‐level governance in those sectors where public bodies at various levels of government are directly involved in implementation.     

Micro‐pensions in India: Issues and challenges

This article aims to fill a gap in the social security literature on India by examining the role of micro‐pensions. The analysis suggests that because of the heterogeneity of the target population, micro‐pension products — with microfinance institutions (MFIs) as the main, but not only sponsors — should be voluntary and portable and permit experimentation in their design and in the delivery of services. Accordingly, decentralized micro‐pension schemes that operate within an appropriate regulatory framework and according to sound governance practices are deemed more fitting for the Indian context than centralized schemes with limited flexibility. The article discusses two case studies of recently‐initiated micro‐pension schemes in India, which reveal the need for rigorous analytical research on the micro‐pension sector, particularly concerning the structuring of pay‐out options and innovative delivery mechanisms. The article concludes that micro‐pensions have the potential to be one of the most useful components in India's multi‐tiered social security system, and should be encouraged.