Guardians of Public Value
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Guardians of Public Value How Public Organisations Become and Remain Institutions Edited by Arjen Boin · Lauren A. Fahy · Paul ‘t Hart Guardians of Public Value “As our public life frays at the edges, you might wish a book would come along explaining how some public organizations manage to beat the odds to become enduring beacons of public value. Well it is here! Through a study of twelve public organizations ranging from the Election Commission of India to the Australian Competition and Consumer Commission, this edited volume pinpoints four patterns of institutionalization that ensures public excellence and integrity.” —Christopher Ansell, Professor, University of California, Berkeley, USA “This is an intriguing book. Drawing on the seminal work of Selznick and Good- sell, editors Boin, Fahy and ‘t Hart have assembled a team of top-notch scholars to address one of the fundamental questions in the social sciences: how do organi- zations become, and remain, institutions? Combining detailed analysis with story- telling, the substantive chapters tease out key factors explaining how institutions evolve and sustain their aura, their standing and their legitimacy. This volume should be required reading across the social sciences.” —Jon Pierre, University of Gothenburg, Sweden “There is a world of institutions we hold in high esteem—businesses, media, authorities or non-governmental organizations we would be proud to work with, eager to learn more about and whose valuable service and standards are beyond any doubt. The present volume is precisely about this type of institution. The editors and authors do an amazing job in reminding us of three things—the wide range and scope of high-performance institutions in almost every area of public life, from the fine arts to hard-core monetary oversight; the effort, the spirit and the wisdom necessary to create and to maintain values, trustworthiness and reputation; and the pivotal importance of such landmark achievements for the stability and sustainable development of democracy, progress in science, economic prosperity and social justice. In times of anti-institutionalism rampant among populists across the political spectrum, this book is an eye-opener when it comes to the linkage between public values and institutional integrity.” —Wolfgang Seibel, Professor of Political and Administrative Sciences, University of Konstanz, Germany Arjen Boin · Lauren A. Fahy · Paul ‘t Hart Editors Guardians of Public Value How Public Organisations Become and Remain Institutions Editors Arjen Boin Lauren A. Fahy Department of Political Science School of Governance Leiden University Utrecht University Leiden, The Netherlands Utrecht, The Netherlands Paul ‘t Hart School of Governance Utrecht University Utrecht, The Netherlands ISBN 978-3-030-51700-7 ISBN 978-3-030-51701-4 (eBook) https://doi.org/10.1007/978-3-030-51701-4 © The Editor(s) (if applicable) and The Author(s) 2021. This book is an open access publication. Open Access This book is licensed under the terms of the Creative Commons Attribution 4.0 International License (http://creativecommons.org/licenses/by/4.0/), which permits use, sharing, adaptation, distribution and reproduction in any medium or format, as long as you give appropriate credit to the original author(s) and the source, provide a link to the Creative Commons license and indicate if changes were made. The images or other third party material in this book are included in the book’s Creative Commons license, unless indicated otherwise in a credit line to the material. If material is not included in the book’s Creative Commons license and your intended use is not permitted by statutory regulation or exceeds the permitted use, you will need to obtain permission directly from the copyright holder. The use of general descriptive names, registered names, trademarks, service marks, etc. in this publication does not imply, even in the absence of a specific statement, that such names are exempt from the relevant protective laws and regulations and therefore free for general use. The publisher, the authors and the editors are safe to assume that the advice and informa- tion in this book are believed to be true and accurate at the date of publication. Neither the publisher nor the authors or the editors give a warranty, expressed or implied, with respect to the material contained herein or for any errors or omissions that may have been made. The publisher remains neutral with regard to jurisdictional claims in published maps and institutional affiliations. Cover image: © Alex Linch shutterstock.com This Palgrave Macmillan imprint is published by the registered company Springer Nature Switzerland AG The registered company address is: Gewerbestrasse 11, 6330 Cham, Switzerland Acknowledgements This project has received funding from the European Research Council (ERC) under the European Union’s Horizon 2020 research and innova- tion programme (grant agreement n° 694266). v Contents 1 Guardians of Public Value: How Public Organizations Become and Remain Institutions 1 Arjen Boin, Lauren A. Fahy, and Paul ‘t Hart 2 The Election Commission of India: Guardian of Democracy 37 Amit Ahuja and Susan Ostermann 3 Singapore’s Corrupt Practices Investigations Bureau: Guardian of Public Integrity 63 Zeger van der Wal 4 The BBC: Guardian of Public Understanding 87 Jean Seaton 5 Sweden’s Riksbank: Guardian of Monetary Integrity 111 Johannes Lindvall 6 The European Court of Justice: Guardian of European Integration 135 Arjen Boin and Susanne K. Schmidt vii viii CONTENTS 7 The Amsterdam Concertgebouw Orchestra: Guardian of Symphonic Music 161 Bert Koopman 8 The World Anti-Doping Agency: Guardian of Elite Sport’s Credibility 185 Maarten van Bottenburg, Arnout Geeraert, and Olivier de Hon 9 CERN: Guardian of the Human Aspiration to Understand the Universe 211 Jos Engelen and Paul ‘t Hart 10 Rijkswaterstaat: Guardian of the Dutch Delta 237 Margo van den Brink 11 Médecins Sans Frontières: Guardian of Humanitarian Values 263 Liesbet Heyse and Valeska Korff 12 The Intergovernmental Panel on Climate Change: Guardian of Climate Science 295 Eric Paglia and Charles Parker 13 The ACCC: Guardian of Viable Markets and Consumer Rights 323 Amanda Smullen and Catherine Clutton Index 347 Notes on Contributors Amit Ahuja is associate professor of political science at the University of California, Santa Barbara. Arjen Boin is professor of public institutions and governance at Leiden University. Catherine Clutton is visiting fellow of ANU College of Asia and the Pacific at Australian National University. Olivier de Hon is chief operating officer at Doping Authority Nether- lands. Jos Engelen is professor emeritus of physics at the University of Amsterdam and NIKHEF. Lauren A. Fahy is a Ph.D. candidate of public administration at Utrecht University. Arnout Geeraert is assistant professor of public administration at Utrecht University. Liesbet Heyse is assistant professor of sociology at the University of Groningen and secretary to the SCOOP board. Bert Koopman is an independent music historian. Valeska Kor f f is junior professor of methods in organizational and administrative research at the University of Potsdam. ix x NOTES ON CONTRIBUTORS Johannes Lindvall is professor of political science at Lund University. Susan Ostermann is assistant professor of global affairs at the University of Notre Dame. Eric Paglia is postdoctoral researcher of history and evolution of global environmental governance at KTH Royal Institute of Technology. Charles Parker is associate professor of political science at Uppsala University. Susanne K. Schmidt is professor of political science at the University of Bremen. Jean Seaton is professor of media history at the University of Westmin- ster and historian of the BBC. Amanda Smullen is senior lecturer of governance and policy at Australian National University. Paul ‘t Hart is professor of public administration at Utrecht University and the Netherlands School of Public Administration. Maarten van Bottenburg is professor of public administration at Utrecht University. Margo van den Brink is assistant professor of spatial planning at the University of Groningen. Zeger van der Wal is associate professor of public management at the National University of Singapore and Affiliate Chair Professor at Leiden University. List of Figures Fig. 1.1 An organization as institution: Selznick’s criteria 5 Fig. 1.2 The virtuous cycle of institutionalization 22 Fig. 1.3 The vicious cycle of deinstitutionalization 28 Fig. 2.1 Parliamentary election duration in India 49 Fig. 5.1 Public Confidence in the Riksbank 115 Fig. 5.2 Sweden’s short-term lending rates, 2008–2019 126 Fig. 11.1 Number of formal HRM documents created per year 278 Fig. 11.2 Accumulation of formal HRM documents over time in MSF Holland 278 Fig. 12.1 Structure of the IPCC 305 xi List of Tables Table 1.1 Organizational features of institutionalizing public organizations 6 Table 5.1 Confidence in the Riksbank among Swedish voters 116 Table 5.2 Levels of income, education and confidence in the Riksbank 117 Table 6.1 Cases put before the European Court of Justice, 1960–2018 145 Table 8.1 WADA’s mission mystique (based on Goodsell 2011) 198 Table 9.1 Pathways to effective international collaboration: the case of CERN 220 Table 10.1 Rijkswaterstaat’s technocratic mission mystique in the 1950s and 1960s 245 Table 10.2 Rijkswaterstaat’s new managerial mission mystique 256 Table 11.1 MSF’s international organizational structure 266 Table 13.1 The mission mystique of the ACCC 339 xiii CHAPTER 1 Guardians of Public Value: How Public Organizations Become and Remain Institutions Arjen Boin, Lauren A. Fahy, and Paul ‘t Hart Institutions as Enigmas It’s an institution—a phrase we have all come across or may have used. We intuitively understand what it means. The Louvre is not just a museum. Ascot is not just a horse race. The Ryman Auditorium in Nashville is not just a music venue. Wembley is not just a stadium. Cambridge University is not just a university. These are institutions.