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This week saw the appointment of a new minister for suicide prevention announced on world mental health day (BBC), and an article in The Guardian observing that mental health resources are woefully underfunded.
My thoughts first turned to the fact that the appointment of a minister to address the problem was reminiscent of New Labour’s previous attempts to address issues with the appointment of various czars, none of which were very successful (BBC). Allied to the appointments were the inevitable plethora of new policies, many failing at the first hurdle. Nonetheless their longevity and to some extent durability lay in ministers’ and state agency managers’ egos, and inability to see beyond fantasy and media pleasing rhetoric. However, it would be disingenuous to fail to acknowledge that some policies and strategies are conceived and implemented with the best of intentions, both at the macro and micro.
The old saying that ‘no plan last[s] beyond the first encounter with the enemy’ (Hughes, 1993:14) probably explains why so many policies fail, not because the essence of the policy is wrong but because politicians and those in charge fail to take into account or to rationalise that at the very core of the policy intentions, lay people. People are unpredictable, people do not conform to ideals or preconceived ideas and, yet policies are formulated to address ideal situations and an ideal homogenous population. No one member of the public is the same, whether they are a victim of crime, an offender, a person in need of medical care or mental health services, a worker, a student or a user of a service. They can be one of these things or a combination of them, they are a product of so many differing socioeconomic influences that any one policy cannot ever hope to deal with the multitude of issues they bring. People are both complex and complicated. A plan or policy needs to be adapted and changed as it progresses, or it will inevitably fail.
That brings me very nicely to one of my favourite authors Michael Lipsky. Lipsky presents those working at the coal face of public services as street-level bureaucrats. Attempting to navigate policy and strategy implementation whilst dealing with predominately less than ideal clients. Lipsky observes that in doing so the street-level bureaucrats are faced with a number of different issues:
- Resources are chronically inadequate relative to the tasks workers are asked to perform.
- The demand for services tends to increase to meet the supply.
- Goal expectations for the agencies in which they work tend to be ambiguous, vague, or conflicting.
- Performance oriented goal achievement tends to be difficult if not impossible to measure.
- Clients are typically nonvoluntary; partly as a result, clients for the most part do not serve as primary bureaucratic reference groups.
(Lipsky 1983, 27:28)
Policies and strategies are difficult to implement, if they are formulated purely on ideals without ever having recourse to those, i.e. the street level bureaucrats, that are required to implement them, they will inevitably fail. If plans rarely survive the first contact, then they need to be adapted or ditched, those best placed to advise on changes are of course those at the coal face. Herein lies the rub, politicians and managers do not like to be told their policy is failing or that it will not work in the first place. They inevitably place the failure of policies, or reluctance to implement them, on those at the coal face with little or no knowledge of the issues that are encountered. The raising of such issues are simply seen as an excuse, laziness or a reluctance to change. More often than not, the opposite is true, street level bureaucrats want change, but for the better not for the sake of it or to be seen to be doing something.
It is difficult to see how the appointment of a new czar will make a difference to suicide rates without fundamental changes in the way that policies and strategies are conceived. Those thinking of writing policy whether at the macro or micro, would do well to get a hold of Lipsky’s book and to reimagine the ‘real’ world.
Lipsky, M (1983) Street-Level Bureaucracy: dilemmas of the individual in public services, New York: Russell Foundation.
Hughes, D (ed) (1993) Moltke on the Art of War: Selected Writings, Random House, (ebook)
A few weeks ago, Sir Cliff Richard won his high court case against the BBC over the coverage of a police raid on his home, the raid relating to an investigation into historical sex abuse. I remember watching the coverage on the BBC and thinking at the time that somehow it wasn’t right. It wasn’t necessarily that his house had been raided that pricked my conscience but the fact that the raid was being filmed for a live audience and sensationalised as the cameras in the overhead helicopter zoomed into various rooms. A few days later in the sauna at my gym I overheard a conversation that went along the lines of ‘I’m not surprised, I always thought he was odd; paedo just like Rolf Harris’. And so, the damage is done, let’s not let the facts get in the way of a good gossip and I dare say a narrative that was repeated up and down the country. But Sir Cliff was never charged nor even arrested, he is innocent.
The case reminded me of something similar in 2003 where another celebrity Matthew Kelly was accused of child sex abuse. He was arrested but never charged, his career effectively took a nose dive and never recovered. He too is innocent and yet is listed amongst many others on a website called the Creep Sheet. The name synonymous with being guilty of something unsavoury and sinister, despite a lack of evidence. The way some of the papers reported that no charges were to be brought, suggested he had ‘got away with it’.
The BBC unsuccessfully sought leave to appeal in the case of Sir Cliff Richard and is considering whether to take the matter to the appeal court. Their concern is the freedom of the press and the rights of the public, citing public interest. Commentary regarding the case suggested that the court judgement impacted victims coming forward in historical abuse cases. Allegations therefore need to be publicised to encourage victims to come forward. This of course helps the prosecution case as evidence of similar fact can be used or in the view of some, abused (Webster R 2002). But what of the accused, are they to be thrown to the wolves?
Balancing individual freedoms and the rights of others including the press is an almost impossible task. The focus within the criminal justice system has shifted and some would say not far enough in favour of victims. What has been forgotten though, is the accused is innocent until proven guilty and despite whatever despicable crimes they are accused of, this is a maxim that criminal justice has stood by for centuries. Whilst the maxim appears to be generally true in court processes, it does not appear to be so outside of court. Instead there has been a dramatic shift from the general acceptance of the maxim ‘innocent until proven guilty’ to a dangerous precedent, which suggests through the press, ‘there’s no smoke without fire’. It is easy to make allegations, not easy to prove them and even more difficult to disprove them. And so, a new maxim, ‘guilty by accusation’. The press cannot complain about their freedoms being curtailed, when they stomp all over everyone else’s.