eee OS SO ESO SESS SSS ST SPSS SSE SS OSS SS Fonts. A Voss of Igaey MAKING DEMOCRACY WORK CIVIC TRADITIONS IN MODERN ITALY Robert D. Putnam itis Robert Leonard and Raffaella ¥. Nanett aqPSS SSS SESS TSS SSSESSSSESSESSCESE SEES SA ‘would completly eliinae several major national males (including Education, Heath, Agvicultre, Socal Affi, snd Urban Affi, mong oes), ansfenig the esponsltcs othe reson, ad one ‘han doubling the regions" share of ie entire national bet to almost 70 perc In some tespcs, the amiaions were reminiscent of the ‘oed at the Gh f the regis in the 1970, lthoagh the mod in the North was dar and mre reser ha the ei, sore opine petiod. The hisxy of governmental sor in Ray noggets cation 18 Irerpreting these developmen, sins th cata stones snl sisted any further devlution of thir powers, tat reponse presaes ‘continued to mount, especially inthe Nott. Anaber page Wat about to be tamed in the sry of Ka regional goverment ‘Wistever te ne caper may bring, we have sea son signs that ny nifoem verde on he eonal expeimeat so aris misentng, given the heteropenety ofthe repione snd fhe performance ti ie to ap aise imetotonal performace uel and explore these ferences CHAPTER 3. ae ‘Measuring Institutional Performance sto ovens? and “Tw well” ae the owe mont ase quetions of| plea science. Te Foner sass eee of dribtion ad rast ion "Who Ges What, Wien, and How? Sac ies fave ben atthe foretiot ofthe disspine's debates in ecetderades By cont, gD" ‘vs apple of inttatinal performance are rare, eventhough “00d ovement” wae once atthe top of our agenda, The undenabe a Fintere of somative pagent fay lnguy abot performance snd EMlectvenes ae made most scholar oer te Ist frty eas reluctant to pursue such questions: de gtr non daptandm et a ast in 8 ‘rae ee, “cbjetive™ soil selene” Even though poll Slats, as Ddinay ized, are often quite wing to judge povernmens perfor: tee, the discptine has too realy telinguaied this mpaant pat ony of ple selence—this“ncient obligation of our eraft™—0 po Iitel posers apd pais ‘We aepire to mllfacted evaluation of each ofthe twenty Haan teelonal government preide to oar investigation of tho cases of Tesitonal ices and fur. But how shoud we ben? What ertesia mast be met by 8 rigors, Inpetl, peuasive eration of isi tonal sueess nee, how cin we be te hat some governments at tly ae sjtematcaly snore effective than others, 20 ut makes Seas to peak generally of stutionalsccess"? ‘The insttation we want to eval i 4 representative goverament ‘Therefore, we nod to evs both it esponsivenen ot coasts sts ts ficiency i condctng the pub's business.* Dennceai the ftom Job Stat Mil to Robert Dab have arsed that "te Key ‘characte of a democray isthe coming responivencss of the gow ‘nent to the pofrences of evens” Damcracy gents itzons te fight co ptt tat government in the hope of achieving sre inv Ind cr social gal, aad regs fir compettion among, diferent vr Sions ofthe public Ines, Goo governments, however, more than foram fr competing viewpoint ofa sounding board for complains it Detully gots ting dane A good democratic government not ony com Sides the deans of ie ceney (aI, i fosponsire), But aid acts ‘Mtcaciusl upon these demands (hati Tete),In order to study insiutonal performance, we must measure i are fully and convineingly. Before se can explore in aggro wy oy te ‘ew regional goverment succeeded in Emil Romagna but filed in Pug we must fist show that these assesment ae ot te wn calor inpreonii: Any seta mearinement of goverment ptr ‘ent mone, deer sevics, nd manage nal pera. Ose ‘Soni, governments mv boon ch rosie osm a nna Fors, io kets Lydn Jose's oro he igh ie Naan Ther Ow assessment at emanate sie, bth eno ‘enon el ore Moreover. goverment have spon in any ier otky acest apie, pc work, edo, sat Series, eeooaiedevelopmat nso om. Our apa mt yall ‘ese eid ft wote compen We cama ope lo mewsate every Stel hig tat wen regina goverens hare de ver wo dens, Ttwemastcst cunt a ely a pole aarp ta ffs apis tn, This ft pens the peesbity ta flee yoreaent Ing singly be god leat gsaome the leader nha ce, ‘rious pevicnal eae ttl frornanes ede efor Sito of hime.” fad ont our aid net tt ot ‘reply oak th ogous i ou eae way wil we be od Inspeakig sey fatal sats ne ‘3m be relble. Tobe wor epsing i ener om, nt int perenne must eso du, nt ote Sone varion ‘verte sto be expect rll the aly yn fnew won ‘Oe govern may sumbl wale asthe aie memontn I te nk ering th regions eet ching Kaeo frm one er th et however, ot bse conception of insite peor mere {ae eisen Bu the sess ae el govern year ya, a gent pciemace tron eng tore hans memes Soe ‘elton of pla oes o he til th erie inst 4 Kim eorepond othe acts and alunos of he nations protons and continents Tos oe al denna Gere, ‘pont te cin of he wron eon. We oust hae eon Ing ale standards tha sooner hor cnatent, We ned ae fal to compnre ca obetne eames fpfomance with ie ews of ‘eters and comma ender each of te epons, We ad tow om naasonine reRronwaxce 6 te pesos chapter ht ston vite coms or gen ‘sons, weveelo cel oar naniemens gat eae Fogle In Bolgn ad Bas, Seve and Pipes This chapter i oraaized to accomplish hese four task. * We begin by looking at each of «dozen diverse probes of goverment ffestivenes in the twenty regions. Next we expo the corelaions among he else measrer, and we ask how stable our summary assessment of peor: tance i overtone. Finally, sve compare oar evaluations, eon y te fon, wit he views of lin voters Sd commomsty leader. Ts go. ‘ous proces isan eselalst sep toward our gal of understanding Inetatonal recessed fur {TWELVE INDICATORS OF INSTITUTIONAL PERFORMANCE, For cach regional goverment, we sek to evaluate (1) poiey proses {© poiey pronouncement; and (3) poiy implementation “An ination’ effectiveness depends, st fal, 08 ow well an apes essential affair, Ths, we may mesa the aby On lnmiaton'sdeiion making appara, for example, ofthe efficacy of Its budgetary proses, othe efeeivenes of management information sytem (See indistos 1-3, py 67-68}) Esenally this family of ‘etsies as: Whatever else his instiuton i doing, ist conducting it ‘Stil interned oprationssmoctbly and with spt? ‘at eudying the petlrmance of governments means studying polices and peogns ss well, Are the goverment prompt t ident) soil teed al propose innovative sltine? Does liaton enacted By De ovement eles «capac 9 rect comprehensively, chereny. and Seavey tote sues a hand? (Ses indoors 4-5, pp 68-7.) inaly, oot apical must move beyond words Yo deeds, We mst clus the rorces of these governments in their roles ab problem Solvers and seice-provider, Arete reions overeat uses ting the avaiable resources to addres the ede ofa apy changing Society? Hive they sented i implementing thie avowed policy bjee- tives establishing health cline, uilding day eave center, and soon? ow effient are they in responding 0 the demands of individ ct ann? (Sow niatrs 6-12, pp. 70-73) ‘While ou evaluation of government mist measure actions, nt just ‘wordy ne at be cael not o give government credit (or lame) for iter bya thi contol the language of policy aalis,we wank {o wenune “outpue” rather than “otsomes™— heath care caer than 8994992999939 399999999929892992244599%5S9SSTFISSSH8SGHHSEHHSESHHGTESSEOCESSESCEES morality ste; envionment policy rater than ai quality, economic flevelopmentprogias rater than business prot. Heals, st quality, tnd profs. ace surely portant, but be reason for excluding than fom (se evaluation of goverment pevformance is simple: socal outcomes tre influenced by tany things Beier government. Health depends on factors lke dit snd ifoyle that are Beyond the dee cota of any emocratic goverment. Ar quality is fafenced by meteorology, de rmography, sn indus, as wells government policy. Profits represent fntepencual sil, worker dligense, world economic condi, ant von To include socal oxtcomes ina assesment of government perfor nce 0 con the "Miasrichasete Mace Fallacy” only « modest Prt of tho pease forthe aftoence of New Engin inthe 1980 (and $lmialy medest potion ofthe bam for he subsequent receaion) wat really stiotsble to tte government, despite 1988 presidental amiga thei the contrary “Ascasing outputs comporavely amd quantitatively ts, of covey a ‘comple, rlve-inden task. To be persuasive, any mesrre of poy por foxmanceshowld te reasonably anafected by dilerenes in subttve Pris, Ki ot eay to compare the innovaivenss, effectiveness, snd foci importance of, sa), scholhip program an am gation p> fram, Inthe context of or stay, howover, thee difiatie are raced {fo manageable propoions Brosdy speaking, the same thomes were Scr in oe interview’ wih plicjruhers snd community leader ll eros Tay” Altough he urge of crn problem vred fom region {oregon thei carly year all eponal governments gapped with si Tar isuer, wc a bls Healt, Yecaonl education, end pubic wor. Bat they not advest these esas equally promplyo comprehen sivelyor efletvely or creatively and the vesuls dl pot equal att tho pllymakors aad tei constiens. As Beta ha note, “is ad ‘rou 1 expect poilos fata goals they do pot want to atin, But ‘Sely reasonable to expect tem ffesionly to pursue those ti te in fact song preferences.” ‘Out deal asesment of institutional success i founded on twelve Aiverse indicates, covering intial processes, policy prosouncemeas, ‘0d policy iplemntation in many diferent pole sector. For the most fat these mesures are dan fen the period 19781 1985, tats, afer the reform lav 382 of 1976 andthe 616 dctss of 1977 had delegated ‘vant ator nd signin fending oa the regions. Tis period ‘ocompasie uns ofthe sond and al of fhe hid elas th ew Insdnatons. Sone of cur indators are quantatvely precise, although {hel connection to substantive otcomes iinet. The relevance of th to incon pecfornone is cleer-cat, although their quantction fetes exact. No single metic, taken in Kolton, would wee trate he regions fil. Calleively, however, these indicators can uadergird Ineodbased Sgeuisnt of insttona sueces and fulce ‘We begin with thse measures of policy proeses antral operations bint stability, budget romps, and satin! and seformation 1. Cabinet Stig Lik the atonal allan government, each resin government i ed by eabint that must retain majorty supp te legis. Some se tion hd highly sale cabinet and thus were abe npc opus Sea coherent lise of policy. Other, by conta, found had io pach {Soaiton ogethe an harder o Heep i topeter’ Out mete hte the ‘mer of dierent cabinet installed in ech region during te 1975 1940 and 1980-1985 legislative penods- Ralph on this mae varied from fo bint inten years i Trentino-Alto Aig ad Uti ine Cabin in en yrs in Silly, Sardinia, and Campania Altiogh the Simplest ofl our dieters of performance, hs measure ts oul 0 be ne ofthe mote powefal 2, Budget Prompiness ‘Beviniog in 1972, al ogons wer sappored wo complete action on their nual budgets by Tena 1 the stat of the Bscal ae. Vitaly none ‘ct ths target, and in thecal 1980s all eplons were hampered by de taps beyond thei contol in the atonal budget ye, However, the wer ‘pe delay vari comely Hom regio region. Our met here was, ‘knply tie: On average, dosing the pid 1979-1985, when wes the ‘badge actually approved bythe regional coun? Ratings vaced from an verge of foray 27 (several weeks 1a) ln Fal-Venezia Giulia (0 ‘August 7 Gente fiscal yore ws lady neatly fwothirds ove) alain 3. Statistical amd Tformation Services ‘ter things beng ea, a government with Better information about ‘consitienty std fee probes ean respond more efeively. Ths all twenty repos wee aed according 6 the breath of heir staal sad information fais. At the botlom were eon tht Ha no suchfucllies a al1—Atruzs, Calabi, Campania, Marche, Molise, Paglia, and Sil. Acie top were Ave regions mia Romuga, Fil- Vere Zia Gila, Lazio, Lomtordia, and Toscana with wellogulpped infer ‘nation sevices, including Bel! saint acd facies for onsinal data ‘oleton, tatsical pocesing, and computer bape analy Next, our investigation cared us beyond “process” measures and ex- plore the content of policy decisions. The fllonng prof measures sre based on comprehensive extminaton of regina epslation 4. Reform Legislation Init diverse policy aras—economie development, tetra aden ronmental planning, and social servicos—we examined the ate eg ‘naive output ofeach region during the peciad 1978 1984. The topics ofthis exteasve body of fw ranged from urban zoning ad Kidney dly- Sisto iserice taining for social workers and regional centr ond tial research and macketing. Our analysis used thee toad tia of vation ‘The comprehension ofthe leon t,he geo whi de ‘ecoregion, ha, ep wih he vac le, progr fal fr smal bes ht war costed ‘ig inna op edhe ta oe a a ‘Thecreaeness6f he ketton, ft ede och iene ach elon was grade rom 15 in ch ofthe the policy set. ‘The summed see ranged om 15 fr Baia Ronmgna, repressing cele performance in alle sss, 03 for Claas Ma erespndng to poor perormanc inal toe. Although hse elaine ‘sesens ae Somewat me npessnitic a les pete thane revous masts, they tefl ea ean’ ote cotet o oul policy, an (swe shal ce er) thy tou minor cy he Evahstions fered by he lee of ach ein, Ou rte for cma ing reform legion do ot ern vey leet pas om te. tei ued by Haan vot Legislative Innovation In lly, as inthe United Stats, many legalaive ea tend to dtfse ‘roa bration governments, oan atractive innovation intoduced by {elaively advanced couel is pcked up and passed in Tess advanced fezions'* We examined twelve diene topes on which sila laws ap eared in many ofthe region: ar and water pllaion, promotion of Ba fries, consumer protection, preventive meical cles, tap mining ‘equation, hotel classieation, wildlife pescton, and so on. Despite Aieing local needs and pies, certain resins were consent ead er or consist! laggards on neal these tps, with aly deo our ‘xcepions (The lendees und laggards on mental health are rplonal “ombudses,” and prometion of voluniats did not mac te overall [pater The cate et of model laws is ahown in Table 3.1.) Oue netic tere isa follows: On average, seoes these twelve domng, how soon attr the fat appearance of # mel law wat I picked wp by & given {egion? ‘The eegion ht pioneered piu La wos given a score of 1d, and region that had not adoped ia al was piven a core of 0. ‘Avceage scores ranged from 74 for Emilia Romagna to df Calbia fact, only one ofthese twelve model Inu wa eer enacted by Cashin, hea Eiila-Romogne had posted al twelve and iad bees Le pone Ing reglon for veo the twelve ‘amin sa Content Medel Low Seip mining rglanon es setin| Lior mest menting elon! onbutsen ‘Mera hath one 79999 O999999999999999999399399933434233SF FOO SOS SSSTSTSSSSSSESSSSESSESESCSEESCSES: [Neat we tuned from policy pronouncements 0 pslicy implementation “The following six indicator measure a regio’s capac oeary out pl icy in visual all of the major sectors of reglonal government stv, Including public heal, social welfare, industrial and areata devel ‘pntcat, ahd housing and urban policy. The fist two of ese ndcatrs ‘epesnt diet service delivery the ext one reflect the repetote of foley tools deployed by each region: and finally tree focu on how fective the regonal goverment were using funds offered to them by the coal government (spending capac"). Spending capcity might at bean appropriate indicator of instinional performance in all seutanes. However, hese tice ses ogiel- {ire, belt, and hosting), te nee fer atonal investments was wey ‘Sccepte, ad falco fading was ely svalble o each region fom the central authors. Nevertheless, some region goverment Ace. ‘lated enormous nexpended appropriations (resi pas, becouse they lacked the organiationsl capacity ad manera infaractre nes: tssiry to tonite their expanding resources ino ation “On the otbet and: move effect regions were ale to spend whi they hoped to spend ‘when they panne to pend 6, Day Care Centers ‘One of the esses! and most succesful poiy intatves undertaken by the new regional governments Was he rovnion of publlyeuppored Uy eare center. In 1977 the conral goverment made subs special ting fortis purpose avalable to each region, vo thatthe “pert onto thereon el forthe progam was heligiie: BY 1983, ik {eats ner, numberof cepons ha eaublsbed wide natwoks of day ae ctr, but eters had made vitally no progres. Out mete bere Is the numberof regionally supported day eae conters in poration bY Decerr 1983, standardized bythe population a children aged 220 four.” This mesure provides an unsually cp Indicator of tegion's abiliy 1 implement policy a the prassoot, given assured extetal funding. Score ranged fom one center per 400 chk in El Ro- smagaa fo one ceaer per 12,360 cure in Campania 7. Family Clinker Inthe heath sector one important experiment, exiginaly auberized by ational eistion in 1974, wa the fay sini contort fanulare), ‘Ove useful menue ofa rpion's ably to implement poley reforms is the numberof fan cine, standardized for regional population, in op tration by May 1978- On that date, Umbra a the tp ofthis ranking had ie amily slic for every 15,000 esdents; Paglia had exacly one line fo serve is 3,850,000 inabiats and the regions of Treto0: Alo [Raiges Mots, and Valle d'Aosta had eabihed no aly elim at a {Industral Polley tnsrumens In 1970, as we noted in Chater 2, te widespresd hope that tbe ne Texionl poverments could foster mre rapid econo devclopmeat wa important motivation forthe iettonal reform. When fds subse {tently became availabe, sme seglons simpy wrote checks to absfie iva fms een os form of patronage Other, more advanced regions, however, provided Intstnctral suppor, improved. pic ‘viel, and encourged publl-privae prserahip.” One era mes ‘Se ofticyophlaicaton ofeach gion into ores of ada poi ean te compete by noting which of an aay of potent! tos of india polly the region actully deployed + repo econo develope pan ‘senna and wre pl Sedo ‘Rel dvlopmen aoe ages ‘Ae seins, suc a Fil-Veneria Gia, had wed al si ofthese iechnogues as of 1984. Calbia, a the oer exteme, hd red ony 9. Agrlulara Spending Capaciy 1 197 te a goverment soa abl mh xen flog angly 340 mle) for vest in gia, icing teat, oestton, Wreck presi, ore, ad vic eettatin for orange sed i sar of intone © upernde Ihc poduion of rane wines. Oe or an, plea dor nd isarateneticeney tet seer tegans ot ening yo th ‘Salus tna ve toogh te aged ela wihagriculture is economical ruil. A eon’ ability to cay out ply intves nei portant economic soto ean be meased y ths fac. ‘on ofthe fu locate othe eon that the region ately disused {a8 planed diag the next three fears (197H- (980). Spending ranged ‘rom 97 percent sn Valle Aewat Opereeat in Calbia and Mise 410, Local Health Unit Expenditares Emily ekg he mo nil eon dem the repos afte Fi was the atonal heh sevice, ellog asa, lnc, and heath Ira The primary ovens imate fot ‘mplememing tee nw moponbite ieee tothe tual og tno of 178, was oe feel Heh Uni" (Unt Sentra Lote Sr USL). One measure ofthe anes of ah oon falls ean Ste ni e's per cpa USL expos a of 1985, Besos ater the enacieot of the ational nt. TOnc gsi al ann for {he heath ervies wa povided byte cual etre. Since USL ‘pendiares are eautely cores with nesses of toby and ‘nf oral, he esas re ot abl othe tytn tat he lowenpenting gions hn ews not for pbc ea srs) Sees on this measure ranged rm Toscana, wih spent pact mote than he tational average, to Sil spd Bast, ech of wach pent 35 percent below th mona erage = 11. Housing and Urban Development (Our sureys showed dt hosing war a high abd increasing prioity for ‘epional officals thoughout lay, expecially inthe 1980s, Beinn in 1971s ad especialy alter 1976, te cone! goverment fered pleat funding esc region to support wabsiized housing (bth pli and Frivaly ovsed), hoaslag rtabitation, and land sequston fr exban ‘evelopment. Regions wate rue to formulate fur yet hosing ‘rams and to set eres for the allocation of fan. We gathered data ih 1978, 1981, 1985, and 1987 on the ability ofthe roxio to ase those fund, as measured by the faction ofthe funds atboreed by the cena sutocties thatthe ego scaly burs. (Spending capacity in this Sense is poslively coneated with eur mesures of touting ality, thus ring out the pose nterpetaon that slow spending merly te ected low needs.) A composite mate covering al four Yeats anges, ‘on average, fom 67 pereat in Eni Romagna to 32 percent in Silly snd Campania ‘tour measures of ptformance 9 ft have taken the perspective of polcyake: How effen fs the badge process? How innovative i the Tepsatlon? How many dy eae centers or foi clinics ovaries Touns have ben provided? What msi fom our analy 0 fai an ‘aluaion of the rlonal government fom the pin of view of asien ‘witha pobiem, 12, Bareaurate Responsiveness “To sess te goveimens “sete!” rxponiveness, we devised Tay ezcotve, bu mocnos and highly ifomative expernen. Inlay 1983 taan coleages spycacel the ceca i ach Teg oqucsting infra sbut tne specie Out Eeshous) obi The est dope ss host enka pedis fo 3 ‘ait inane ws ingterwar nation od ‘Rev cn inn edt + Theos drs om fe ie" IMocnaton ot lone nescence The nial ests wore mde by al and he eps ere vated for prompts: lari, and comerconsivenes. tno timely reply was reese, follo-up tlphone cals and (When necessay) personal visits rere made, Inver can, the quality and alae ofthe response was ‘tasted his expeimentemled us fo constuct a compet inex of the responsiveness of tee important agencis, comparable actos: al ny regis? Ia the mos elicieateeglon) (Era Romagna and Vale Aosta), two ofthe tre ings received thorough eles within 1 vee of our inital lets, andthe hed eqaied sng elepone cal Inthe bast efient rion (Clabia, Campania, and Sardi), nove of the male inure ceceived any reply all, and two ofthe te requests red many weeks, several phono callsand» person visit ol. COHERENCE AND RELIABILITY OF THE INDEX OF INSTITUTIONAL PERFORMANCE (Ou ist of twelve inictrs i itened to elect the diversity of things that madem governments do 10 and Tor det citizens. The differences io performance levels suggeted by these indicators are abso terms, {ote remarkable cabinets five nes more drablein one eon ha a FET TEETITTTTT STF 999 99399999999949%4%3