Street-level bureaucrats as strategy shapers in social and health service delivery: Empirical evidence from six countries

Abstract

In this research article, we discuss the social construction of public services within the conceptual and theoretical framework provided by Lipsky. We are interested in what it means if/when street-level bureaucrats (SLBs) have an active role in the construction of a service system. We argue that there are multiple realities in terms of the construction of public services and we approach the question by deploying Lipsky’s notion on SLBs by empirically analysing middle managers’ views on how SLBs act and their role in this construction process. This paper is based on empirical interviews (N=100) collated in 2012 from Barcelona, Den Bosch, Glasgow, Melbourne, Toronto, Vancouver, the Greater London area, and the US state of Vermont. The research collation strategy was to include reform-oriented cities and countries in terms of developing and delivering public services. We found that SLBs have three different kinds of strategies in the construction process: policy-making, working practices, and professionalism. We found that there are no conflicts arising from SLBs’ beliefs, organisational demands, and rules and regulations. Instead, SLBs try to solve conflicts or bridge gaps between policy-making and practical work in the boundaries between SLBs and service users. Based on this research, the role of SLBs and the built-in flexibility and agility of public service leadership and organisations must be addressed and developed further. The role of organisational learning and changing organisational cultures must also be scrutinized in the context of public service systems. The analysis of professional resilience in the context of public services planning needs more theoretical and empirical attention. The resilience of organisations and the capacities of SLBs need to be researched more. Finally, there is the need for better cultivation of the role of the SLBs and service users with regard to accountability aspects (horizontal and vertical).