La búsqueda de coordinación en los gobiernos centrales europeos / The Quest for Coordination in European Central Government
DOI:
https://doi.org/10.29265/gypp.v26i3.353Palabras clave:
coordinación, coherencia entre políticas públicas, funcionarios públicos, reforma, coordination, policy coherence, civil servants, reformResumen
Resumen. La coordinación de los esfuerzos gubernamentales para lidiar con ámbitos complejos de políticas públicas, como la seguridad social o la salud, es esencial y tiene que ser una parte central de las reformas recientes. Este artículo se enfoca en la calidad de la coordinación en los gobiernos centrales europeos según las percepciones de funcionarios públicos de alto rango. Estudiamos la coordinación horizontal y vertical, y la coherencia y coordinación de políticas públicas. Un supuesto clave es que la calidad de la coordinación variará según los mecanismos de coordinación, las medidas de reforma y las diferencias entre países. Examinamos cómo los acuerdos jerárquicos tradicionales, las medidas de la nueva gestión pública (NGP) y los acuerdos de “gobiernos integrales” afectan la calidad de la coordinación. La base empírica del análisis es un sondeo con ejecutivos administrativos en ministerios y organismos centrales en diez países europeos realizado en 2012. Mientras que los ejecutivos tienden a evaluar la coordinación vertical en su propio ámbito político como muy buena, identifican problemas con otros tipos de coordinación, específicamente en la coordinación horizontal entre ámbitos políticos. A pesar de las reformas de coordinación significativas, los efectos son bastante ambiguos. Tanto los acuerdos de red asociados con instrumentos pos-ngp como los instrumentos ngp más tradicionales, como la gestión del desempeño, significan una diferencia en la percepción de la calidad de la coordinación. También hay variaciones significativas entre países.
Abstract. Coordination of government efforts dealing with complex policy areas such as social welfare or health is essential and has been a central part of recent reforms. This article addresses the quality of coordination in European central government as perceived by top civil servants. We study horizontal and vertical coordination and policy coherence and coordination. A main assumption is that coordination quality will vary with coordinating mechanisms and reform measures as well as with differences between countries. We examine how traditional hierarchical arrangements, npm-measures as well as whole-of government arrangements affect the coordination quality. The empirical basis of the analysis is a survey of administrative executives in ministries and central agencies in 10 European countries conducted in 2012. While these executives tend to evaluate vertical coordination in their own policy area as pretty good, they identify problems with other types of coordination—specifically horizontal coordination across policy areas. In spite of significant coordination reforms the effects are rather ambiguous. Both network arrangements associated with post-NPM and more traditional npm instruments such performance management make a difference on the perception of coordination quality. There are also significant variations across countries.
Descargas
Citas
Albrow, M. (1970), Bureaucracy, Londres, Macmillan.
Ansell, C., A. Boin y A. Keller (2010), “Managing Transboundary Crises: Identifying the Building Blocks of an Effective Response System”, Journal of Contingencies and Crisis Management, 18(4), pp. 195-207.
Aucoin, P. (1990), “Administrative Reform in Public Management: Principles, Paradoxes and Pendulums”, Governance, 3(2), pp. 115-137.
Bogdanor, V. (ed.) (2005), Joined-Up Government, Oxford, Oxford University Press.
Boston, J., J. Martin, J. Pallot y P. Walsh (1996), Public Management: The New Zealand Model, Auckland, Oxford University Press.
Bouckaert, G., B.G. Peters y K. Verhoest (2010), The Coordination of Public Sector: Organizations, Basingstoke, Palgrave Macmillan.
Brunsson, N. y J.P. Olsen (1993), The Reforming Organization, Londres, Routledge.
Christensen, D.A., T. Christensen, P. Lægreid y T. Midtbø (2012), “Cross-border Coordination Activities in Central Government Administration: Combining Organizational Conditions and Individual Features”, Public Organization Review, 12(4), pp. 367-382.
Christensen, T. y M. Painter (2004), “The Politics of sars: Rational Responses or Ambiguity, Symbols and Chaos?”, Policy and Society, 23(2), pp. 18-48.
Christensen, T., P. Lægreid., P.G. Roness y K.A. Røvik (2007), Organization Theory and the Public Sector, Londres, Routledge.
Christensen, T., A.L. Fimreite y P. Lægreid (2007), “Reform of Employment and Welfare Administration: The Challenge of Coordinating Diverse Public Organizations”, International Journal of Administrative Sciences, 73(3), pp. 389-408.
Christensen, T. y P. Lægreid (2001), New Public Management: The Transformation of Ideas and Practice, Aldershot, Ashgate. Christensen, T. y P. Lægreid (eds.) (2006), Autonomy and Regulation: Coping with Agencies in the Modern State, Cheltenham, Edward Elgar.
Christensen, T. y P. Lægreid (2006a), “Whole-of-Government Approach to Public Sector Reform: Regulation of Performance Inside Government?”, Public Organization Review, 67(6), pp. 1959-1066.
Christensen, T. y P. Lægreid (eds.) (2007), Transcending New Public Management: The Transformation of Public Sector Reforms, Aldershot, Ashgate.
Christensen, T. y P. Lægreid (2008), “NPM and Beyond: Leadership, Demography and Culture”, International Journal of Administrative Sciences, 74(1), pp. 5-21.
Christensen, T. y P. Lægreid (2008a), “The Challenges of Coordination in Central Government Organizations: The Norwegian Case”, Public Organization Review, 8(2), pp. 97-116.
Christensen, T., A.L. Fimreite y P. Lægreid (2013), “Joined-Up Government for Welfare Administrative Reform in Norway”, Public Organization Review, 14(4), pp. 439-456.
Dahl, R.A. y C.E. Lindblom (1953), Politics, Economics and Welfare, Nueva York, Harper & Row.
Du Gay, P. (2000), In Praise of Bureaucracy, Londres, Sage.
Egeberg, M. (2012), “How Bureaucratic Structure matters: An Organizational Perspective”, en B.G. Peters y J. Pierre (eds.), Handbook of Public Administration, Londres, Sage.
Goodshell, C. (1994), The Case for Bureaucracy: A Public Administration Polemic, Chatham, Chatham House.
Gregory, R. (2003), “All the King’s Horses and All the King’s Men: Putting New Zealand’s Public Sector Back Together Again”, International Public Management Review, 4(2), pp. 41-58.
Greve, C., P. Lægreid y L.H. Rykkja (eds.) (2016), Nordic Administrative Reforms: Lessons for Public Management, Londres, Palgrave Macmillan.
Gulick, L. (1937), “Notes on the Theory of Organization”, en L. Gulick y L.F. Urwick (eds.), Papers on the Science of Administration, Nueva York, Institute of Public Administration.
Hall, R.H., J.P. Clark, P.C. Giordano, P.V. Johnson y M.V. Roekel (1977), “Patterns of Interorganizational Relationships”, Administrative Science Quarterly, 22(3), pp. 457-474.
Hammerschmid, G., A. Oprisor y V. Stimac (2013), Cocops Executive Survey on Public Sector Reform in Europe: Research Report, Cocops, disponible en: www.cocops.eu [fecha de consulta: 17 de junio de 2013].
Hammerschmid, G., S. Van de Walle, R. Andrews y P. Bezes (2016), Public Administration Reforms in Europe: The View from the Top, Cheltenham, Edward Elgar.
Hood, C. (1976), The Limits of Administration, Londres, Wiley.
Hood, C. (2005), “The Idea of Joined-up Government: A Historical Perspective”, en V. Bogdanor (ed.), Joined-Up Government, Oxford, Oxford University Press.
Jennings, E.T.K. y D. Krane (1994), “Coordination and Welfare Reform: The Quest for the Philosopher’s Stone”, Public Administration Review, 54(4), pp. 341-348.
Kavanagh, D. y D. Richards (2001), “Departmentalism and Joined-up Government: Back to the Future?” Parliamentary Affairs, 54(1), pp. 1-18.
Kettl, D.F. (2003), “Contingent Coordination: Practical and Theoretical Puzzles for Homeland Security”, American Review of Public Administration, 33, pp. 253-277.
Kickert, W., T. Randma-Liiv y R. Savi (2013), “Fiscal Consolidation in Europe: A Comparative Analysis”, informe de tendencias, Cocops.
Krasner, S. (1988), “Sovereignty: An Institutional Perspective”, Comparative Political Studies, 21, pp. 66-94.
Lægreid, P., P.G. Roness y K. Rubecksen (2006), “Performance Management in Practice: The Norwegian Way”, Financial Accountability and Management, 22(3), pp. 251-270.
Lægreid, P., P.G. Roness y K. Rubecksen (2008), “Performance Information and Performance Steering”, en S. Van der Walle y W. Van Dooren (eds.), Utilizing Public Sector Performance Information, Basingstoke, Palgrave Macmillan.
Lægreid, P., T. Randma-Liiv, L.H. Rykkja y K. Sarapuu (2013), The Governance of Social Cohesion: Innovative Coordinating Practices in Public Management, reporte de investigación, COCOPS, disponible en: www.cocops.eu [fecha de consulta: 12 de febrero de 2014].
Lægreid, P. y K. Verhoest (2010), Governance of Public Sector Organizations, Basingstoke, Palgrave Macmillan.
Lægreid, P., Å.D. Nordø y L.H. Rykkja (2013), “Public Sector Reform in Norway: Views and Experiences from Senior Executives”, reporte de investigación COCOPS, disponible en: www.cocops.eu [fecha de consulta: 12 de febrero de 2014].
Lægreid, P., Å.D. Nordø y L.H. Rykkja (2013a). “Coordination Quality in Norwegian Central Government”, documento de trabajo 14, Cocops, disponible en: www.cocops.eu [fecha de consulta: 12 de febrero de 2014].
Lægreid, P. y L.H. Rykkja (2015), “Organizing for ‘Wicked Problems’: Analyzing Coordination Arrangements in Two Policy Areas”, International Journal of Public Sector Management, 28(6), pp. 3475-3493.
Lægreid, P., T. Ramnda-Liiv, L.H. Rykkja y K. Sarapuu (2016), “Coordinating Challenges and Administrative Reform”, en G. Hammerschmid, S. Van de Walle, R. Andrews y P. Bezes (eds.), Public Administration Reforms in Europe: The View from theTop, Cheltenham, Edward Elgar.
Lodge, M. y C. Hood (2012), “Into an Age of Multiple Austerities? Public Management and Public Service Bargains across OECD Countries”, Governance, 25(1), pp. 79-101.
Ling (2002), “Delivering Joined-up Government in the UK: Dimensions, Issues and Problems”, Public Administration, 80(4), pp. 615-642.
March, J.G. y J.P. Olsen (1983), “Organizing Political Life. What Administrative Reorganizations Tells Us about Government”, American Political Science Review, 77(2), pp. 281-297.
March, J.G. y J.P. Olsen (1989), Rediscovering Institutions, Nueva York, The Free Press.
Minzberg, H. (1979), The Structuring of Organizations: A Synthesis of the Research, Englewood Cliffs, Prentice-Hall.
Mulgan, G. (2005), “Joined-up Government: Past, Present, and Future”, en V. Bogdanor (ed.), Joined-up Government, Oxford, Oxford University Press.
Olsen, J.P. (2006), “May Be it is Time to Rediscover Bureaucracy”, Journal of Public Administration Research and Theory, 16(1), pp. 1-24.
Olsen, J.P. (2008), “The Ups and Downs of Bureaucratic Organization”, Annual Review of Political Science, 11, pp. 13-37.
Ongaro, E. (2009), Public Management Reform and Modernization: Trajectories of Administrative Change in Italy, France, Greece, Portugal and Spain, Cheltenham, Edward Elgar.
Osborne, S.P. (2006), “The New Public Governance?”, Public Management Review, 8(3), pp. 377-387.
Osborne, S.P. (ed.) (2010), The New Public Governance Emerging Perspectives on the Theory and Practice of Public Governance, Londres, Routledge.
Painter, M. y B.G. Peters (2010), Administrative Traditions and Administrative Reform, Basingstoke, Palgrave Macmillan.
Painter, M. y B.G. Peters (eds.) (2010a), Tradition and Public Administration, Nueva York, Palgrave Macmillan.
Perri 6 (2015), “Joined-up Government in the West beyond Britain: A Provisional Assessment”, en V. Bogdanor (ed.), Joined-up Government, Oxford, Oxford University Press.
Peters, B.G. (1998), “Managing Horizontal Government: The Politics of Coordination”, Public Administration, 76(2), pp. 295-311.
Peters, B.G. (2005), “The Search for Coordination and Coherence in Public Policy: Return to the Centre?”, manuscrito, University of Pittsburgh.
Peters, B.G. (2006), “Concepts and Theories of Horizontal Policy Management”, en B.G. Peters y J. Pierre (eds.), Handbook of Public Policy, Londres, Sage.
Pierre, J. y B. Rothstein (2011), “Reinventing Weber: The Role of Institutions in Creating Social Trust”, en T. Christensen y P. Lægreid (eds.), The Ashgate Research Companion to NPM, Aldershot, Ashgate.
Pollitt, C. (2003), “Joined-up-Government: A Survey”, Political Studies Review, 1(1), pp. 34-49.
Pollit, C. (ed.) (2013), Context in Public Policy and Management: The Missing Link? Cheltenham, Edward Elgar.
Pollitt, C., X. Girre, J. Lonsdale, R. Mul, H. Summa y M. Waerness (1999), Performance or Compliance? Performance Audit and Public Management in Five Countries, Oxford, Oxford University Press.
Pollitt, C. y G. Bouckaert (2011), Public Management Reform: A Comparative Analysis, Oxford, Oxford University Press.
Reichborn-Kjennerud, K. (2013), “Political Accountability and the Performance Audit: The Case of the Auditor General in Norway”, Public Administration, 19(3), pp. 680-695.
Richards, D. y M. Smith (2006), “The Tension of Political Control and Administrative Autonomy: From NPM to a Reconstituted Westminster Model”, en T. Christensen y P. Lægreid (eds.), Autonomy and Control: Coping with Agencies in the Modern State, Cheltenham, Edward Elgar.
Seidman, H. (1970), Politics, Positions ans Power, Oxford, Oxford University Press.
Simon, H. (1957), Administrative Behavior, Nueva York, Macmillan.
Thompson, J.D. (1967), Organizations in Action, Nueva York, McGraw-Hill.
Verhoest, K. (2011), “The Relevance for Culture for npm”, en T. Christensen y P. Lægreid (eds.), The Ashgate Research Companion to NPM, Aldershot, Ashgate.
Verhoest, K., B.G. Peters, E. Beuselinck y G. Bouckaert (2005), “How Coordination and Control of Public Organizations by Government Interrelate: An Analytical and Empirical Exploration”, ponencia presentada en el Scancor Workshop, 1 de abril, Stanford University.
Verhoest, K., P.G. Roness, B. Verschuere, K. Rubecksen y M. MacCarthaigh (2010), Autonomy and Control of State Agencies, Basingstoke, Palgrave Macmillan.
Weber, M. (1947), The Theory of Social and Economic Organization, Nueva York, The Free Press.
Wise, C. (2002), “Organizing for Homeland Security”, Public Administration Review, 62(2), pp. 131-144.
Descargas
Publicado
-
Resumen82
-
PDF54
