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THE PALGRAVE HANDBOOK OF
PUBLIC ADMINISTRATION AND
MANAGEMENT IN EUROPE

Edited by
Edoardo Ongaro and Sandra van Thiel
 The Palgrave Handbook of Public Administration
and Management in Europe

“Recognizing that the art of effective government in contemporary society is now

also dependent on social science, Ongaro and van Thiel have delivered an ambitious
scholarly project to document administrative diversity and complexity in Europe.
­
Grounded in a parliamentary-legal context, this long awaited set of analyses by pro-
minent ­ scholars provides a compass for delivering on governments’ promises, a
­comparative framework for scholarly research across borders, and a model that public
administration and management communities in other regions of the world—governed
under diverse ­systems—should not only teach, but replicate as an intellectual resource.”
—Marc Holzer, University Professor and Founding Dean Emeritus, School of Public
Affairs and Administration, Rutgers University, USA

“Public administration in Europe is doing remarkably well—both as a field of practice

and as an interdisciplinary field of study. Contrary to some expectations the modern
state, its organization and its management are more important and relevant than
ever, and European scholars are playing an ever more prominent role in describing
and explaining these developments. This Handbook offers a fascinating overview over
the unique administrative and theoretical diversity of Europe, and for the first time
it assembles a truly European group of PA scholars, from north and south as well as
from east and west. It is a milestone for many years to come.”
—Werner Jann, Emeritus Professor of Political Science, Administration and
Organisation, University of Potsdam, Germany

“This comprehensive collection is strongly recommended as the essential source on

European public administration and management. A compelling feature is that the
book includes so many of the right experts writing on the most pertinent subjects in
this field.”
—John Hallighan, Professor of Public Administration, University of Canberra,
Australia

“True understanding is comparative and contextual in nature. This handbook

embodies that spirit and will greatly help advance our understanding of public
­
administration and policy in Europe. It is not only comprehensive and systematic
­
but also substantive and state of the art! A must-have for those who are interested
in Europe and those who are interested in comparing public management and policy
across national boundaries.”
—Kaifeng Yang, Dean and Professor, School of Public Administration and Policy,
­Renmin University, China, and Professor, Florida State University, US
“This is an authoritative collection of key readings on Public Administration and
Management covering all key topics and perspectives. While its geographic focus is
Europe, indeed right because of the uniqueness of depth of analysis into the context
of this region, readers in all parts of the world will find it most useful.”
—M. Ramesh, Professor of Governance and Public Policy,
Lee Kwan Yew School of Public Policy, Singapore

“This Handbook provides a comprehensive and informative ­collection of key readings

on the public sector in Europe. Anyone interested in p
­ ublic administration in Europe
can profit from reading this volume.”
—B. Guy Peters, Maurice Falk Professor of American Government,
University of Pittsburgh, USA

“When brilliant scholars are joined together by equally competent editors—in

a p­erspective that is all-encompassing across the countries of a region and the
generations of scholars—the outcome is a marvellous gift for the entire public
­
­administration and management community, the Latin American and the global one.
We do have in our hands a richly designed mosaic of theories, doctrines, approaches,
methods and practices, corresponding to all the most relevant themes in the field.
Charting the territory of public administration and management in Europe provides
an invaluable map for the comparative administration movement across the globe.
Focus and locus are intertwined to generate good knowledge.”
—Bianor Scelza Cavalcanti, International Director, Getulio Vargas Foundation, Brazil

“Now we have a very significant and challenging handbook of Public Administration

and Management contextualized to contemporary Europe, where the science and
practice of public administration are strongly developed. It represents a basis for other
regions of the world to undertake comparative research and ultimately further the
general study of public management in the global society.”
—Koichiro Agata, Professor of Public Administration, Waseda University, Japan
 Edoardo Ongaro · Sandra van Thiel
Editors

The Palgrave
Handbook of Public
Administration and
Management in Europe
Editors
Edoardo Ongaro Sandra van Thiel
Department for Public Leadership and Institute for Management Research
Social Enterprise—PulSE Faculty Radboud University Nijmegen
of Business and Law Nijmegen, The Netherlands
The Open University
Milton Keynes, UK

ISBN 978-1-137-55268-6 ISBN 978-1-137-55269-3 (eBook)

https://doi.org/10.1057/978-1-137-55269-3

Library of Congress Control Number: 2017939083

© The Editor(s) (if applicable) and The Author(s) 2018

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accordance with the Copyright, Designs and Patents Act 1988.
This work is subject to copyright. All rights are solely and exclusively licensed by the Publisher,
whether the whole or part of the material is concerned, specifically the rights of translation,
reprinting, reuse of illustrations, recitation, broadcasting, reproduction on microfilms or in any
other physical way, and transmission or information storage and retrieval, electronic adaptation,
computer software, or by similar or dissimilar methodology now known or hereafter developed.
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 information 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, express 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.

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Printed on acid-free paper

This Palgrave Macmillan imprint is published by Springer Nature

The registered company is Macmillan Publishers Ltd.
The registered company address is: The Campus, 4 Crinan Street, London, N1 9XW, United
Kingdom
 This book is dedicated to Christopher Pollitt
a dear colleague, an intellectual guide, a friend
 Foreword

‘Tous les savoirs du monde’ (All the Knowledge

of the World)

It always was an ambition of human beings to map what is known, and to do

so in a systematic way. This happened in Mesopotamia, in China, in Europe.
It happened in the distant past of Alexandria, but also in the current wikipe-
dian world.
Mapping the known in a certain reality, almost in an encyclopedic way,
requires considering two intellectual dimensions. First, to have a good struc-
ture for the knowledge inventory. Second, to have a comprehensive list of
what is known under a particular category within that structure.
These structures of knowledge are always contingent. One could structure
the existing knowledge and create a comprehensive format which includes all
modules (which is mostly what this handbook aims to make). However, one
could also start in a deductive way, and then develop a tree structure of pos-
sible knowledge, known and unknown.
It is also interesting to see how levels of knowledge and coverage of reali-
ties have evolved over the centuries. This is a dynamic process since knowl-
edge creates realities, but realities also create knowledge. For these reasons, it
is good to take stock of what is known in a particular field. This book is tak-
ing stock of Public Administration in Europe as well as of the distinctiveness
of European Public Administration. With its 63 chapters, it is comprehensive
in its ambition.

European Perspectives for Public Administration (EPPA):

European PA Versus PA in Europe
The PA research community in Europe has changed significantly in the past dec-
ades. PA research has become more European. The volume of research money
at the national and European (see the research programmes FP7 and H2020)
vii
viii Foreword

level also has expanded and allowed to finance substantial research pro-
grammes and networks (COST). It has pushed the quantity and quality of
comparative research in the field of PA. Researchers and Ph.Ds. have circu-
lated within Europe between research teams. Doctoral PA programmes have
professionalized.
The PA community in Europe has grown in the past decades, certainly in
some countries. There are many reasons for this. Obviously, the presence of
EGPA (the European Group for Public Administration) and NISPAcee (the
network of National Institutes and Schools for Public Administration in Cen-
tral Eastern Europe) has created a (re-)new(ed) capacity. The PA-teaching
networks have become more European with an effort to guarantee exchange,
learning, quality control and to promote knowledge transfer across Europe
(through the European Association of PA Accreditation—EAPAA, and the
Erasmus programme).
There is a need to keep PA ‘contemporary’ and to stay relevant for the
practice of public administration. Contemporary PA is not just PA knowledge
produced today and focusing on current developments in the field of public
administration and society, it is PA knowledge produced today that is relevant
for the future. To have a PA knowledge production strategy which guarantees
its relevance for the future, there is a need to organize this as an academic
community.
Several periodic efforts have been organized in the past, mostly in the
USA. The Minnowbrook tradition including the major conferences Min-
nowbrook I (1968), Minnowbrook II (1988), Minnowbrook III (2008) are
fine examples of how to reflect upon how to remain relevant for the future
and how to anticipate. On the European side, even when many Americans
were involved, the Bielefeld project at the beginning of the 1980s was a land-
mark initiative. EGPA, on the occasion of its 35th anniversary in 2010 (as
a regional group within IIAS—the International Institute of Administrative
Sciences—which celebrated its 80th anniversary), reflected on the identity of
its European PA community (Bouckaert and van de Donk 2010); and 5 years
later, on occasion of its 40th anniversary, launched a similar exercise, this time
focused on the institutionalization of EGPA in the research landscape, Euro-
pean and global, as well as on the functional, cultural and institutional reasons
that call for a regional group for PA in Europe (Ongaro 2017). Some promi-
nent scholars have also made their own analysis and assessment of the field
(Pollitt 2016).
When these past efforts of ‘taking stock’ or producing ‘substantial reflec-
tions’ are analyzed, there seems to be a set of common denominators,
assumptions and expectations (Bertels et al. 2016):

1. Public Administration research and teaching runs too much behind the
actualities; however it should also be in front of the facts, it should not
just push realities but also pull realities;
 Foreword ix

2. Public Administration is too much dominated by one discipline; how-

ever, it should be much more taking several disciplines into account and
result in an equilibrated approach;
3. Public Administration is thinking too much in causal terms; however, it
should also, as a social science, think in teleological terms;
4. Public Administration is often pretending to be disconnected from time
and space; however, it should take actively and positively context and
culture into account;
5. Public Administration research is still relevant for practice; however, it
should anticipate its future relevance for public administration.

But why a European perspective?

There are several reasons to take a European perspective to map the
knowledge of PA. The European level adds to its multi-level governance
approach. There is administrative diversity and plurality, also shown in the
official languages as expressions of cultures. Several modern conceptions were
founded in Europe and have evolved in their own way, including the welfare
state, separation of State and Churches or parliamentarianism. Its history has
created its own path dependency.
There is a difference between European Public Administration (EPA) and
Public Administration in Europe (PAE). It is necessary to distinguish between
these two approaches. The one, EPA, takes the contingencies and features
of Europe into account. It starts from the European specificities and moves
to the general and generic levels. The other, PAE, is about applying general
knowledge to the European sphere of public administration. Both approaches
invite for comparative research and learning from other practices.
There are specific problems in Europe which need to be addressed, also
by European scholars. Studying the functioning of the European Union
Institutions (and the Council of Europe) and their policies, and their inter-
actions with the Member-Countries, is one of the most significant topics
where European Public Administration needs to increase its relevance and its
capacity to be a part of the solutions. At the same time, Europe is about an
ethnolinguistic and cultural diversity. There are 24 official languages in the
European Union. To bring unity in diversity in a context of ‘requisite variety’
becomes an important assignment for PA.
Transformations of PA systems in Europe are a combination of causality
and path dependency as a push factor, but also and even more of a teleologi-
cal drive as a pull factor. Defining this ‘telos’—the goal to be pursued—should
be a part of the role of PA to develop possible futures. The European Union
moved from a chapter in foreign policy to a chapter in domestic policy and
politics. Therefore, Public Administration also needs to move from Public
Administration in its separate Member-Countries, to Public Administration
in Europe, to ultimately European Public Administration. This trajectory calls
for the broad umbrella of European Perspectives for Public Administration.
x Foreword

Learning Through Dialogues

The major purpose of mapping knowledge is also to push for new strategies
for new knowledge. Increasingly knowledge production happens through
interactions, collaborations and dialogues. PA as an interdisciplinary field of
study needs platforms with shared research strategies. Ultimately, taking stock
should be functional for the future. It will allow to ‘Know the known’, to
‘Know the unknown’, and to be aware of the ‘Unknown unknown’.
A crucial point for PA is if our knowledge of PA creates new realities, or
whether (new) realities create new knowledge. It is the difference between
knowledge as discovering existing realities and knowledge as innovating new
realities. Social sciences in general, and PA in particular have been too much
on the side of discovering and understanding existing realities, and perhaps too
little on the side of innovating new realities. Let us hope this Handbook results
in research strategies which innovate realities, and which anticipate future chal-
lenges. Let us develop European Perspectives for Public Administration.

Geert Bouckaert
KU Leuven, Belgium

References
Bouckaert, G. & van de Donk, W. (eds.) (2010). The European Group for Public
Administration (1975–2010) Perspectives for the Future, Le Groupe Européen
pour l’Administration Publique (1975–2010) Perspectives pour le Futur. Bruylant,
Bruxelles, 342p.
Bertels, J., Bouckaert, G. & van de Donk, W. (2016). European Perspectives for Pub-
lic Administration and Public Management. Paper presented at the 2016 IPMN
Conference, St. Gallen, Switzerland.
EPPA (European Perspectives for Public Administration). www.europeanperspectivespa.eu.
Ongaro, E. (ed.) (2017). Public Administration in Europe: The Contribution of EGPA.
London: Palgrave
 Acknowledgements

It is possibly a bit unusual to start acknowledgements with the very authors of

the chapters of the book, but it is the contribution of each and every one of
the many prominent scholars scattered across Europe who have been willing
to spend a not irrelevant bit of their time and energies to make this handbook
possible that we want to acknowledge first.
Our gratitude also goes to our home institutions. One of the ­ editors
(Edoardo) is especially grateful for a sabbatical granted by his former i­nstitution,
Northumbria University, in Winter-spring 2016: an opportunity which deci-
sively contributed to make this long-yearned intellectual venture possible.
We also thank wholeheartedly the Publisher, Palgrave. Jemima Warren has
been a hugely supportive editor, always friendly to all our requests (often: of
more, and then again more, pages for the handbook). All our requests had
very good reasons (at least so we thought), but we wouldn’t have even dared
to ask so many without knowing how exceptionally supportive Jemima and
the staff at Palgrave were.
The venture of this handbook was originally conceived together with
another commissioning editor at Palgrave, Sara Crowley-Vigneau. Sara has
shown, since the very first talk—initial and exploratory—we had about the
idea of a handbook on public administration and management in Europe, an
incredible intellectual adhesion and trust in the significance of this p ­ roject
and has supported it wholeheartedly. We are very grateful to Sara for her
­support, which was simply decisive for this project to take off.
Later on in the unfolding of the project, Amy Helsloot provided invaluable
support in the stylistic editing of all the chapters.
Last but not least, we want to thank our families for the unflinching s­upport
and inexhaustible patience, not least in tolerating our absence from family tasks
(chores) while working during long weekends on the completion of this project.

Edoardo Ongaro
Sandra van Thiel
xi
 Contents

Part I Public Administration and Management in Europe

1 Introduction 3
Edoardo Ongaro and Sandra van Thiel

2 Public Administration and Public Management Research

in Europe: Traditions and Trends 11
Edoardo Ongaro, Sandra van Thiel, Andrew Massey, Jon Pierre
and Hellmut Wollmann

3 Education and Training in Public Administration

and Management in Europe 41
Christoph Reichard and Eckhard Schröter

4 Languages and Public Administration in Europe 61

Edoardo Ongaro and Sandra van Thiel

Part II Public Management Themes

5 Strategic Management in Public Services Organizations:

Developing a European Perspective 101
Ewan Ferlie and Salvador Parrado

6 Leadership in Europe’s Public Sector 121

Anne Drumaux and Paul Joyce

xiii
xiv Contents

7 Public Budgets and Budgeting in Europe: State

of the Art and Future Challenges 141
Iris Saliterer, Mariafrancesca Sicilia and Ileana Steccolini

8 IPSAS, EPSAS and Other Challenges in European Public

Sector Accounting and Auditing 165
Isabel Brusca, Eugenio Caperchione, Sandra Cohen
and Francesca Manes-Rossi

9 Accountability in Liberal Democratic, Parliamentary Systems 187

Leanne-Marie McCarthy-Cotter and Matthew Flinders

10 Performance Management in Europe: An Idea Whose

Time Has Come and Gone? 207
Wouter Van Dooren and Cornelia Hoffmann

11 Explaining Citizen Satisfaction and Dissatisfaction with

Public Services 227
Steven Van de Walle

12 Public Personnel Reforms and Public Sector HRM

in Europe 243
Peter Leisink and Eva Knies

13 Public Service Motivation: State of the Art and Conceptual

Cleanup 261
Wouter Vandenabeele, Adrian Ritz and Oliver Neumann

14 Ethics and Integrity 279

Michael Macaulay

15 The Public Network Scholarly Community in Europe:

Main Characteristics and Future Developments 291
Daniela Cristofoli, Myrna Mandell and Marco Meneguzzo

16 Collaborative Governance and the Third Sector: Something

Old, Something New 311
Taco Brandsen and Karen Johnston

17 Agencification in Europe 327

Koen Verhoest
 Contents xv

18 ICT, E-Government and E-Governance: Bits & Bytes

for Public Administration 347
Vincent Homburg

19 Public Procurement in Europe 363

Jolien Grandia

20 Public–Private Partnerships: Recent Trends

and the Central Role of Managerial Competence 381
Veronica Vecchi and Mark Hellowell

21 From Participation to Co-production: Widening

and Deepening the Contributions of Citizens
to Public Services and Outcomes 403
Elke Loeffler and Tony Bovaird

22 The Roles of Branding in Public Administration

and Place Management: Possibilities and Pitfalls 425
G.J. Ashworth and M. Kavaratzis

23 Communication of and for Public Services 441

Martial Pasquier

24 Managing Crises in Europe: A Public Management

Perspective 459
Donald Blondin and Arjen Boin

25 Consulting for the Public Sector in Europe 475

Reto Steiner, Claire Kaiser and Lukas Reichmuth

26 Public Sector Negotiations 497

Robin Bouwman

Part III Public Policy and Administration Themes

27 Policy-Making and Public Management 517

Alberto Asquer and Valentina Mele

28 Agenda-Setting and Framing in Europe 535

Sebastiaan Princen
xvi Contents

29 Policy Implementation in an Age of Governance 553

Harald Sætren and Peter L. Hupe

30 Policy Evaluation in Europe 577

Valérie Pattyn, Stijn van Voorst, Ellen Mastenbroek
and Claire A. Dunlop

31 Policy Learning and Organizational Capacity 595

Claire A. Dunlop and Claudio M. Radaelli

32 Policy Diffusion and European Public Policy Research 621

Fabio Wasserfallen

33 Comparative Regulatory Regimes and Public Policy 635

Martino Maggetti and Christian Ewert

34 Coordination in Europe 653

Muiris MacCarthaigh and Astrid Molenveld

35 Risk and Blame in the Public Sector 671

Sandra L. Resodihardjo

36 EU Citizens and Public Services: The Machinery

Behind the Principles 689
François Lafarge

37 Is Social Innovation a Game Changer of Relationships

Between Citizens and Governments? 707
William Voorberg and Victor Bekkers

38 Welfare Administration and Its Reform 727

Tanja Klenk

Part IV Comparative Perspectives and the Study

of Public Administration in Europe

39 The Transformative Effects of Transnational Administrative

Coordination in the European Multi-level System 747
Tobias Bach and Eva Ruffing

40 The Changing Nature of European Governance

and the Dynamics of Europeanization 765
Vasilis Leontitsis and Stella Ladi
 Contents xvii

41 The European Commission as an Administration 783

Hussein Kassim

42 The EU Policy Process 805

Eva G. Heidbreder and Gijs Jan Brandsma

43 Europeanization of Policies and Administration 823

Ellen Mastenbroek

44 Comparative Local Government Research: Theoretical

Concepts and Empirical Findings from a European
Perspective 841
Ellen Wayenberg and Sabine Kuhlmann

45 Factors and Determinants of the Quality of Public

Administration in the CEE-Region 865
Juraj Nemec and Michiel S. de Vries

46 Public Administration in Europe North and South: Enduring

Differences and New Cleavages? 881
Dimitri A. Sotiropoulos

47 The Impact of Fiscal Crisis on Public Administration

in Europe 899
Tiina Randma-Liiv and Walter Kickert

48 Exploring the Legacies of New Public Management

in Europe 919
Philippe Bezes

49 Public Value Management and New Public Governance: Key

Traits, Issues and Developments 967
Joyce Liddle

50 What is the ‘Neo-Weberian State’ as a Regime

of Public Administration? 991
Haldor Byrkjeflot, Paul du Gay and Carsten Greve

51 Max Weber’s Bequest for European Public Administration 1011

Christian Rosser

52 Islamic Public Administration in Europe 1031

Wolfgang Drechsler
xviii Contents

53 Public Administration and Political Science 1049

Michael W. Bauer

54 Law and Public Administration: A Love–Hate Relationship? 1067

Dacian C. Dragos and Philip M. Langbroek

55 An Organization Approach to Public Administration 1087

Tom Christensen and Per Lægreid

56 Economics and PA: Public Choice Theory, Transaction

Costs Theory, Theory of Expectations, and the Enduring
Influence of Economics Modeling on PA—Comparing the
Debate in the US and Europe 1105
Piret Tõnurist and Martin Bækgaard

57 Behavioral Public Administration: Connecting Psychology

with European Public Administration Research 1121
Asmus Leth Olsen, Lars Tummers, Stephan Grimmelikhuijsen
and Sebastian Jilke

58 The Case of Case Study Research in Europe: Practice

and Potential 1135
Markus Haverland and Reinout van der Veer

59 Challenges for Large-Scale International Comparative

Survey-Based Research in Public Administration 1147
Koen Verhoest, Jan Wynen, Wouter Vandenabeele
and Steven Van de Walle

60 Administrative Action and Administrative Behaviour:

Some Philosophical Underpinnings 1169
Turo Virtanen

Part V Overview and the Future of Public Administration

and Management Research in Europe

61 The Contested Autonomy of Policy Advisory Bodies:

The Trade-off Between Autonomy and Control
of Policy Advisory Bodies in the Netherlands,
the United Kingdom, and Sweden 1189
D. Bressers, M.J.W. van Twist, M.A. van der Steen
and J.M. Schulz
 Contents xix

62 Usable Knowledge: Discipline-Oriented Versus

Problem-Oriented Social Science in Public Policy 1213
Colin Talbot and Carole Talbot

63 Conclusions 1235
Sandra van Thiel and Edoardo Ongaro

Post-face: The Significance of the Palgrave Handbook of Public

Administration and Management in Europe for the US Public
Administration Community 1243

Post-face: Latin American Public Administration’s

Transformation: Lessons from the European Experience 1247

Post-face: The Significance of the Palgrave Handbook of Public

Administration and Management in Europe for the Asian Public
Administration and Management Community: The Pleasure
of Rediscovering European Public Administration 1263

Post-face: The Significance of the Palgrave Handbook

of Public Administration and Management in Europe
for Australia—Learning from Europe: Developments
in Australian Public Administration 1273

Index 1289
 Editors and Contributors

About the Editors

Edoardo Ongaro is Professor of Public Management at the Open University,

UK. Previously he has held positions at Northumbria University, Newcastle,
UK and at SDA Bocconi School of Management and Bocconi University,
Italy. Since September 2013 he is the President of the European Group
for Public Administration (EGPA), the main learned society in Europe
in the field of public management and administration. He has served in
various academic and expert committees and has contributed to numer-
ous international research projects. He is editor of Public Policy and
Administration. He has published extensively on the topic of administra-
tive reforms and comparative public management. Publications include:
Philosophy and Public Administration: An Introduction (2017 Edward Elgar);
Strategic Management in Public Service Organisations: Concepts, Schools and
Contemporary Issues (2015 Routledge, co-authored with Ewan Ferlie); Multi-
Level Governance: The Missing Linkages (editor, 2015 Emerald); and Public
Management Reform and Modernization: Trajectories of Administrative
Change in Italy, France, Greece, Portugal and Spain (2009 Edward Elgar).
Prof. Ongaro is Fellow of the Academy of the Social Sciences of the United
Kingdom.

Sandra van Thiel is Professor of Public Management at Radboud University,

Nijmegen, The Netherlands and director of the Institute for Management
Research at the Nijmegen School of Management. Her research focuses
on the creation and steering of semi-autonomous agencies. She has pub-
lished in journals like Journal of Public Administration Research and Theory,
Governance and Public Management Review. Books have appeared with
Palgrave MacMillan, for example a 30-country comparison of agencies

xxi
xxii Editors and Contributors

(together with Koen Verhoest, Per Laegreid and Geert Bouckaert). Sandra is
editor-in-chief of the International Journal of Public Sector Management.

Contributors

Gregory J. Ashworth was educated in Geography at the Universities of

Cambridge, Reading and London (Ph.D. 1974). Since 1994, he is Professor
of heritage management and urban tourism in the University of Groningen
(NL). His main research interests focus on the interrelations between tour-
ism, heritage, and place marketing, largely in an urban context. He is author
or editor of around 15 books, 100 book chapters, and 200 articles. He
received honorary life membership of the Hungarian Geographical Society in
1995, an honorary doctorate from the University of Brighton in 2010, and
was knighted for services to Dutch Science in 2011.
Alberto Asquer is lecturer of public policy and management at SOAS
University of London, where he is director of the Centre for Financial and
Management Studies. His research focuses on the regulation of infrastructure
and utilities and on public sector organisational change. His studies have been
published in Governance, Public Management Review, International Public
Management Journal, Utilities Policy, and Water Policy. He is co-editor of
The Political Economy of Local Regulation published by Palgrave MacMillan
in 2016. He holds an MSc and a Ph.D. from LSE.
Tobias Bach is Associate Professor of Public Policy and Administration
at the University of Oslo, Norway, and a Fellow at the Hertie School of
Governance, Germany. His research focuses on the structure and organi-
zation of government and executive politics in a comparative perspective,
including bureaucratic autonomy, the effect of supranational integration on
national administrations, career patterns of senior officials, and bureaucratic
politics. He has published articles in Governance, Public Administration,
Public Management Review, Administration & Society, and the International
Review of Administrative Sciences, among others.
Martin Baekgaard is Associate Professor at the Department of Political
Science, Aarhus University (Denmark). His current fields of research and
teaching include performance management, citizen satisfaction, intergovern-
mental relations, public budgeting, experimental and quantitative methods,
and political knowledge. His research has been published in journals like
Public Administration Research and Theory, Public Administration Review,
Governance, and Public Administration.
Michael W. Bauer is Jean Monnet Professor and holds the Chair of
Comparative Public Administration and Policy Analysis at the German
University of Administrative Sciences in Speyer. He is interested in inter-
national and multi-level public administration as well as in the comparative
 Editors and Contributors xxiii

analysis of public policy-making. Current projects include investigating the

autonomy of international bureaucracies, studying implementation conflicts
in EU annulment litigation, and surveying the attitudes of subnational as well
as supranational public servants to European integration.
Victor Bekkers is Professor of public administration and public policy at the
Department of Public Administration and Sociology of Erasmus University
Rotterdam. His main research focusses on the role of innovation and mod-
ern information and communication technologies as well as new media influ-
ence the content, course, and outcomes of policy and governance processes.
Most recently he coordinated an EU wide, 7th framework research project on
social innovation in the public sector (LIPSE).
Philippe Bezes is CNRS Research Professor (Centre National de la Recherche
Scientifique) in the Centre d’Études européennes at Sciences Po (CEE, Paris,
France). His academic interests are administrative reforms and changing
bureaucracies in France and in comparative perspective, state transformations,
institutional change and public policy. He is the author of Réinventer l’Etat:
Les réformes de l’administration française (1962–2008) (Presses Universitaires
de France, 2009) and has recently published a co-edited volume Public
Administration Reforms in Europe: The View from the Top (with Steven van
de Walle, Gerhard Hammerschmid, Rhys Andrews, Edward Elgar, 2016). He
has also published in journals like Governance or West European Politics.
Donald Blondin is a Ph.D. candidate at Leiden University’s Political Science
Institute. His research examines the management of transnational crises,
with a particular focus on the European Union. Donald has also written on
the governance of global challenges such as climate change, financial insta-
bility, and economic development. He holds a Master of Public Policy from
the Hertie School of Governance (Berlin, Germany) and a Bachelor’s degree
from the University of California, Berkeley.
Arjen Boin is a Professor of Public Governance and Institutions at Leiden
University’s Political Science Institute. He is also managing director at
Crisisplan, an international consultancy. He writes on the challenges of strate-
gic crisis management.
Robin Bouwman is a Ph.D. student of Public Administration at the
Institute for Management Research, Radboud University Nijmegen, the
Netherlands. He carries out to compare public- and private-sector negotia-
tions and negotiators. His research interests include Negotiation, bargaining,
decision-making and experimental research methodology.
Tony Bovaird is Emeritus Professor of Public Management and Policy
at the Institute of Local Government Studies, University of Birmingham,
UK and Director of the non-profit organization Governance International.
His research covers strategic management of public services, performance
measurement in public agencies, evaluation of public management and
xxiv Editors and Contributors

governance reforms, and user and community co-production of public ser-

vices. He has undertaken research for UK Research Councils, OECD, the
European Commission, many UK government departments and local author-
ities, Scottish and Welsh governments, LGA, Audit Commission, National
Audit Office, and many other public bodies in the UK and internationally.
He is on the Scientific Board of the German Research Institute for Public
Administration. He is co-author (with Elke Loeffler) of Public Management
and Governance (Routledge, 3rd edition 2015).
Taco Brandsen is Professor of Public Administration at Radboud University
Nijmegen. His research interests include public management, co-production,
the third sector and civil society. He has initiated and been part of numer-
ous national and international research projects in public administration. He
is currently joint editor of the journal Voluntas, one of the world’s leading
journals in nonprofit and voluntary sector studies.
Gijs Jan Brandsma is Assistant Professor in European Politics and
Administration at Utrecht University, the Netherlands. His research focuses
on EU decision-making, accountability, delegation to the EU executive,
and on multi-level governance.He has published in many journals includ-
ing Journal of Public Administration Research and Theory, European Union
Politics, Public Administration, Journal of European Public Policy, Journal
of Common Market Studies, and others. Books have appeared with Oxford
University Press and Palgrave, in particular on the issue of delegation to the
European Union executive. Gijs Jan co-chairs the EGPA Permanent Study
Group on European and Multi-level Governance.
Daphne Bressers is a Ph.D. researcher and program manager at the
Netherlands School of Public Administration. She holds a research mas-
ter degree in public administration and organizational science at Utrecht
University. Topics of interests and research are: strategic management, policy
advice, and policy advisory systems.
Isabel Brusca is Professor in Accounting in the Department of Accounting
and Finance at the University of Zaragoza. Her research and professional
interest is focused on public sector accounting and management. She has par-
ticipated in numerous research projects in this field and is the author of sev-
eral books and papers in prestigious journals, such as International Review
of Administrative Sciences or Local Government Studies. She has been a
consultant of the Committee on Local and Regional Democracy (CDLR)
of the Council of Europe. She has participated in the study designing the
basic guidelines for the reform of the budgetary and accounting system of
the European Commission. She is vice president of the Spanish Association of
University Professors of Accounting and co-chair of the XII Permanent Study
Group of EGPA (European Group for Public Administration).
 Editors and Contributors xxv

Haldor Byrkjeflot is Professor in Sociology at University of Oslo, cur-

rently academic director of one of the three major strategic priority areas at
University of Oslo, UiO Nordic. Currently, he is particularly interested in
exploring issues relating to historical-comparative research, organization the-
ory and the making and circulation of ideas across societies. His publications
cover a broad spectre of social scientific problems such as logics of employ-
ment systems, comparative healthcare reforms, public sector reforms as well
as the comparative study of management systems and bureaucracy.
Eugenio Caperchione is Professor of Public Management and Public Sector
Accounting. His main research area is public sector accounting, and he priv-
ileges the comparative approach. He has published extensively on this sub-
ject, and has taken intensively in the work of CIGAR network (Comparative
International Governmental Accounting Research—http://www.cigar-net-
work.net), where he is serving as the Chairman of the Board; and of EGPA,
European Group for Public Administration, co-chairing the XII Permanent
Study Group, Public Sector Financial Management. He has been an invited
speaker and has presented papers in a number of international conferences
and workshops.
Tom Christensen is Professor in the Department of Political Science,
University of Oslo, Norway. He is also affiliated with Uni Research Rokkan
Centre, Norway, and Renmin University, China. His main research inter-
ests deal with studies of central civil service and public sector reforms,
both nationally and comparatively. His research is theoretically based on
organization theory. He has published extensively in all the major public
administration journals and has coauthored several textbooks and interna-
tional edited volumes in the field. His recent volumes include The Ashgate
Research Companion to New Public Management (with P. Lægreid) and The
Routledge Handbook to Accountability and Welfare State Reforms in Europe
(with P. Lægreid).
Sandra Cohen is an Associate Professor of Accounting in the Department
of Business Administration at Athens University of Economics and Business.
Her research interests lie in the fields of Public Sector Accounting (accrual
accounting adoption, accounting harmonization), Management account-
ing and Intellectual Capital. Her research work has been published in sev-
eral ranked journals such as Accounting, Auditing and Accountability Journal
and Financial Accountability and Management, and has been presented in
numerous international conferences. She is a member of the Greek National
Accounting Standards Setter and co-chair of the XII Permanent Study Group
of EGPA. She is a co-author in four books in Greek and either author or co-
author in numerous chapters in international books. She has participated in
several consulting projects for both the private sector and the public sector
mainly related to cost accounting and she has been a member of the research
team in several EC founded projects.
xxvi Editors and Contributors

Daniela Cristofoli was Assistant Professor in Public Management at the

Università della Svizzera Italiana. She recently moved to Università degli
Studi di Milano—Bicocca. Her research interests include public network
management and governance and public management reforms.
Michiel S. de Vries is Professor and Chair in Public Administration at the
Radboud University Nijmegen. He is past president of IASIA, the chair of the
NISPA working group on Local Government and full member of the group
of independent experts on the European Charter of Local Self-government.
His latest book is Understanding Public Administration (Palgrave publ,
2016). His work was published in journals, including Administration &
Society, International Review of Administrative Sciences, European Journal of
Political Research and Local Government Studies.
Dacian C. Dragos is Jean Monnet Professor of Administrative and European
Law at the Babes Bolyai University Cluj Napoca, Romania, and director of
the Center for Good Governance Studies. His research focuses on adminis-
trative procedure, alternative dispute resolution in administrative law, trans-
parency in administration, law and public management, public procurement
law and policy. He has published in law and administrative science jour-
nals. Books and chapters in books have appeared with Springer, Cambridge
University Press, Bruylant, CRC Press, DJOEF, Edward Elgar, C.H. Beck
Romania. He is a member of the editorial board of the European Public
Procurement and PPP Law Review and a co-chair of the Group X—Law and
Administration of the European Group for Public Administration.
Wolfgang Drechsler is Professor and Chair of Governance at the Ragnar
Nurkse School of Innovation and Governance at Tallinn University of
Technology, Estonia, and a visiting faculty member at the Lee Kuan Yew
School of Public Policy, National University of Singapore. He holds a
Ph.D. from the University of Marburg and an honorary doctorate from
Corvinus University Budapest. Wolfgang has been a visiting professor i.e., at
the Université catholique de Louvain; at the Central University of Finance
and Economics Beijing; at the University of Malaya; at Zhejiang and at
Gadjah Mada Universities; and at the National Institute for Development
Administration Bangkok. In civil service, he has been Advisor to the President
of Estonia, Executive Secretary with the German Wissenschaftsrat, and,
as an APSA Congressional Fellow, Senior Legislative Analyst in the United
States Congress. Wolfgang’s areas of interest include Non-Western, especially
Confucian, Buddhist, and Islamic, Public Administration; PA, Technology,
and Innovation; and Public Management Reform. He is a member of the
management board of IASIA.
Anne Drumaux is full Professor in not-for-profit and public management at
Solvay Brussels School of Economics and Management, Université Libre de
Bruxelles, Belgium. Her research lies in the interaction between public policy
and strategic management.
 Editors and Contributors xxvii

Paul du Gay is Professor of globalization at the Department of

Organization, Copenhagen Business School and also at Royal Holloway
University in London. His research interests have been and continue to be
located on the cusp of sociology, politics, history and cultural studies, with a
key focus on questions of organizations and identity.
Claire A. Dunlop is Professor of Politics at the Department of Politics at
the University of Exeter, United Kingdom. A public policy and administra-
tion scholar, Claire’s main fields of interest include the politics of expertise
and knowledge utilization; epistemic communities and advisory politics; risk
governance; policy learning and analysis; impact assessment; and policy nar-
ratives. She explores these conceptual interests at the UK and EU levels prin-
cipally, and most frequently in relation to agricultural, environmental and
LGBT issues. Claire has published more than 40 peer-reviewed journal arti-
cles and book chapters—most recently in Policy and Politics, Policy Sciences,
International Public Management Journal, Regulation & Governance
and Journal of European Public Policy. She is editor of Public Policy and
Administration.
Christian Ewert is a Ph.D. candidate at the University of Lausanne and a
researcher at the NCCR Democracy, Zurich, Switzerland. He works on trans-
national regulatory regimes and private governance. In particular, he inves-
tigates the interaction within complex regulatory regimes, how regulatory
resources and responsibilities are shared, and how these regimes are held
accountable for their performance and output.
Ewan Ferlie is Professor of Public Services Management at King’s College
London. He has published widely on questions of restructuring and large
scale change in public services organizations. He is coauthor (with Edoardo
Ongaro) of ‘Strategic Management in Public Services Organizations’,
recently published by Routledge. He is Hon Chair of a Learned Society: the
Society for the Study of Organizing in Health Care (SHOC).
Matthew Flinders is Founding Director of the Sir Bernard Crick Centre for
the Public Understanding of Politics at the University of Sheffield. He is also
Chair of the Political Studies Association of the United Kingdom and a mem-
ber of the board of the Academy of Social Sciences.
Jolien Grandia is Assistant Professor of public administration at Radboud
University, Nijmegen, The Netherlands. Her research focuses on the role
of public procurement in public administration and its effects and determi-
nants. She received her Ph.D. from the Erasmus University in Rotterdam on
the role of factors and actors in the implementation of sustainable public pro-
curement. Jolien has published in journals like Public Administration, Public
Money & Management and The Journal of Cleaner Production. She is also
the guest-editor of a special issue of the International Journal of Public Sector
Management on ‘public procurement as a policy tool’.
Another random document with
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 "Are you sure there is no hope of recovering anything?"

"None, I'm afraid," said Captain Fortescue. "I wish I

could give you any hope, but I fear I cannot. It is hard for
you to hear, very, very hard, and oh! How hard for me to
tell!"

"I'm sure it is," said Marjorie. "I think it is worse for you
than for us."

"Mrs. Douglas, I am a poor man now. I cannot continue

in my regiment, and so far no path in life has been opened
to me; but I assure you of this—that I shall look upon the
four thousand pounds you have lost as a debt binding upon
me as long as I live, and that, if God prospers me in the
future, every single penny of it shall be repaid. I will not
wait, however, until I am able to restore the whole capital,
for that I fear will be the work of a lifetime; but I will send
you from time to time such money as I am able to save,
and I will not allow myself in a single indulgence of any kind
whatever until the full amount is in your hands."

"It is very good of you—very noble," she said; "but you

must not make such a resolve. You are not to blame for our
loss; you yourself have lost still more heavily. I cannot let
you sacrifice yourself in that way."

"God helping me, Mrs. Douglas," he answered, as he

rose to take leave, "my promise will be kept."

Mrs. Douglas pressed him to stay for supper, but he did

not accept her invitation; he felt that they would want to be
alone, that they might talk over what had happened. So he
said good-bye, and Marjorie went to open the door for him.
The wind rushed in with hurricane force as soon as it was
opened.
 "What an awful night, and how dark!" she said, closing
the door again. "I will light the lantern, and go with you to
the gate, or you will never find it in this darkness."

He begged her not to come, but she would not listen,

and, catching up a shawl from the hall table, wrapped it
round her, and went in front of him down the garden path
with the lantern in her hand. At the gate she stopped.

"How can I thank you, Miss Douglas?"

"Don't try!" she said, laughing. "Can you find your way
now, do you think?"

"Oh yes, quite well. Good-bye. I am off early to-morrow

morning."

"Then we shall not see you again?"

"No," he said sadly, "perhaps never again. Birds of ill

omen are never welcome—are they?"

"Oh! Don't call yourself that," she said. "Good-bye,

Captain Fortescue."

He had left her, and was going towards the bridge,

when he thought he heard her calling. He looked back, and
saw that she was still standing at the gate with the lantern
in her hand.

"Did you call, Miss Douglas?" he asked.

"Yes; I ought not to have brought you back, but I did

want to thank you."

"I don't know why you should thank me."

 "For being so good to mother," she said; and then she
turned round and went up the hill, and he watched the light
of her lantern until he saw it pass inside the door of the
house.

What a wild night that was! Kenneth Fortescue slept

very little, for the wind was howling in the chimneys of the
old inn, rattling the badly fitting windows, sweeping down
the narrow valley, and tearing with terrific force across the
open country beyond. He lay listening to the wind, and
thinking many troubled thoughts during the long hours of
that wakeful night.

He had ordered a carriage to take him to Keswick in

time for the early train, so he jumped out of bed as soon as
he was called, and went to the window of his room to look
out at the weather. The whole country was covered with
deep snow. Mountains, rocks, woods, houses, fields,
gardens, were alike arrayed in white robes, pure and
spotless, and sparkling in the morning sunshine as if
covered with countless diamonds.

When, a little later, he went down to the coffee-room,

the landlord came to speak to him.

"I'm afraid, sir, you won't be able to go to-day. There's

been a terrible snowstorm, and Borrowdale is blocked. It
will be impossible to drive through it."

"Surely it is not so deep as that!"

"Not here, sir, nor for about a mile down the valley; but
when you come to the turning in the road at the narrowest
part of the valley the snow has drifted there to a fearful
depth, and for about half a mile the snow is so deep it
would be impossible to get through it. We are shut off from
Keswick entirely."
 "Won't they clear the road?"

"Well, sir, they'll try to make a way through, but it will

be a long job. I'm afraid we shan't get through to-day."

"Then there is no help for it," said the Captain. "I must
stay."

"Yes, sir; I'm very sorry you should be so

inconvenienced, but I'll do my best to make you
comfortable; and it's a beautiful country. If you haven't
been here before, you might like to see a little of it, and it's
good walking round here and on towards Honister, if you
care to take a look round."

Yet Kenneth Fortescue was in no hurry to go out, or to

leave the great fire in the large grate. He sat beside it with
a paper in his hand, reading at times, and at other times
gazing at the blue smoke curling up the chimney. And then,
after a while, he stood at the window, gazing absently out
into the village street. He had much on his mind that
morning, and he felt that even the loveliest scenery failed to
beguile him from pursuing the troubled train of thought
which he felt impelled to follow. But presently he was
recalled from the future to the present by seeing Marjorie
Douglas pass the window with a covered basket in her
hand. Her face looked to him as bright and cheerful as it
had done before he had told her the sad news he had come
to disclose; the clouds seemed to have dispersed, and the
sunshine to have come back to it.

Kenneth wondered where she was going. He caught up

his cap and ran after her, to ask how her mother was, and
how she had borne the sad tidings he had brought her.

Marjorie heard him coming behind her, and turned

round in the greatest surprise.
 "Captain Fortescue, I thought you had gone!"

"No, Miss Douglas; I'm the bad penny, as well as the

bird of ill omen," he said. "The fact is, there is a snowdrift in
the valley, so I have to stay here till to-morrow."

"How tiresome for you!"

"Yes, it is rather; but I shall see a little more of the

country—it looks beautiful this morning. Where are you
going, Miss Douglas? Let me carry your basket for you."

"Not until you get your coat," she said. "It's far too cold
to stand talking without it."

He ran back for it, and soon rejoined her.

"I am going to Seatoller," she said.

"Who is Toller?"

She laughed very much at this question, and told him

that Seatoller was the name of the little hamlet where old
Mary lived.

"Do you mind my coming with you, Miss Douglas? It's

awfully slow going for a walk alone."

"Not at all. Only take care how you carry that basket,
because old Mary's pudding and beef-tea are in it."

"Who is old Mary?"

"She's a dear old woman who lives in one of the

cottages at Seatoller. Look across the valley, you can see
the white houses of the little place. There are only about
six, I think. They are just at the bottom of Honister Pass."
 "Do you often go to see her?"

"Whenever I can. We have quite a number of old

women here. I think it must be because it is so healthy.
They all live to be very old, and they are all friends of mine,
so they have to take their turn; but this is old Mary's day."

"How they must look forward to their turn!" he said.

"Yes, I think they do; but I'm afraid none of them will
get a turn soon. I'm going away, Captain Fortescue."

"Going away?"

"Yes, from home. We settled that last night. You see, we

had a little family council after you had gone, to talk things
over. Mother wanted to send Dorcas away—that's our old
servant—but I don't think that would do. She is very faithful
to mother, and though I think I could do most of her work,
still on the whole I think it would make more for mother to
do. Dorcas does the washing so well, and she's so useful in
every way, and we don't like to send her away, if we can
possibly help it, poor old soul!"

"Then what do you mean to do?"

"Well, I don't quite know yet. Go as companion or

mother's help, I suppose. I don't think I could get any
teaching, because I've never passed any exams. Every one
seems to require that now. Louis always brings us the
'Standard' when his father has read it, and we shall look in
the advertisements."

"It will be awfully hard for you to go away."

"Oh, I don't know! Yes, I suppose it will rather. But I

don't mind, if only they get on all right at home; but I think
they ought to, if only Phyllis will take care of mother. I think
she will. I believe she will; only, you see, she is the
youngest, and I'm afraid we've spoilt her a little. But she's
such a dear old girl, and I do think she will try."

"I'm terribly sorry that you should have to go."

"Oh, you mustn't be sorry for me," she said, laughing.

"I'm not going to be sorry for myself. I dare say I shall be
very happy soon, and if not—well, it really does not matter.
It will be all the nicer when I get home for the holidays.
Now here we are at old Mary's cottage. I must just run in
with her things."

Marjorie took the basket from him and went into the
house, and as Captain Fortescue watched her, he wondered
what the old woman would do when she missed the bright
face and cheerful voice of her friend.

When she came out, she took him up the steep pass,
that he might see Honister Crag in the distance, standing
out in all its majestic grandeur at the head of the pass. On
their left-hand side was the mountain torrent, dashing
madly over the rocks, coming down so fast that no frost
could stay its course; on their right was moorland, the dead
heather thickly covered with snow.

About a mile up the pass the snow became deeper, and

they had to turn back, and, passing Seatoller again, they
retraced their steps to Rosthwaite. Marjorie never alluded
again to her going away, or to the loss of the money; she
seemed anxious that he should forget everything painful,
that he might be able to carry back with him a happy
memory of her beautiful home.

When Kenneth left her at the garden gate, he went back

to the inn feeling more hopeful about the future. If she was
determined to face it so bravely and happily, surely he could
do the same. Perhaps, after all, there were brighter days in
store in that future which he had so much dreaded, and
which had seemed such a long vista of darkness opening
out before him.

After luncheon, he was sitting over the fire in the

coffee-room, looking at a paper two days old, and
wondering how he should get through the long solitary
evening, when the waiter came in and handed him a letter.
It was from Mrs. Douglas, inviting him to spend the evening
at Fernbank, and assuring him that he would be conferring
a favour upon them by doing so, as in winter they were so
shut out front the world beyond the valley that they seldom
had the pleasure of meeting any one outside their own little
circle of friends in Borrowdale. The invitation was so
gracefully worded, as if the obligation were entirely on his
side, that the Captain felt he could only send an affirmative
answer, nor, if the truth were told, did he desire to send any
other.

So at five o'clock, he once more crossed the bridge and

climbed the hill to Fernbank.

He was shown into a small drawing-room, plainly

furnished, but bearing unmistakable marks of taste and
care. A china bowl of fern-like moss stood on the table, in
which were snowdrops arranged singly, as if they were
growing in it. A flower-stand filled with hyacinths of various
colours stood in the window; in one corner of the room ivy
was growing in a large flower-pot, and was climbing over
the chimney-piece, and hanging in graceful festoons from
the over-mantle; whilst a vase filled with Pyrus japonica and
yellow jessamine stood on the shelf below, and was
reflected in the glass.
 They all gave him a welcome, and made him feel that
they were glad to see him. There was no allusion made
during the evening to what he had told them the day
before. The bird of ill omen was treated as if he had been
the harbinger of good news. Kenneth had been to many
costly entertainments of various kinds, but he thought that
the cosiness of that Cumberland tea eclipsed them all. The
snow-white cloth, the bright, well-trimmed lamp, the early
violets and snowdrops tastefully arranged on a pretty table-
centre, the freshly baked scones, the girdle-cakes—a
speciality of the Lake district—the crisp oat cake, the honey
from the hive in the garden, the new-laid eggs from their
own poultry yard—all these combined to make the meal an
inviting one, and long afterwards, and when in far different
surroundings, Kenneth Fortescue was wont to recall it with
pleasure, and to wonder if he would ever again see a like
picture of home comfort.

"You look sleepy, Phyllis," said Marjorie, as they sat

down to tea. "You ought to have come with me to Seatoller;
it was lovely out to-day."

"What's the good of going out when there's nowhere to

go? Besides, I was reading. I wanted to finish that book
Louis brought. I never can stop when I'm in the middle of a
story."

Mrs. Douglas laughed. "Phyllis is afflicted with deafness

at times, Captain Fortescue," she said; "if she is reading,
she is stone-deaf the whole time."

Leila had joined them at the table, and little Carl, a

pretty boy of three, with fair hair and blue eyes, was seated
on a high chair by her side. She looked ill and depressed
and spoke very little, but the child was full of life, and
amused them all with his baby talk.
 After tea they had games and music. Phyllis was very
clever at the latter and sang well. She was not at all like her
sister, very much prettier most people said, but it was
beauty of feature rather than of expression. Kenneth
thought she had rather a discontented face, and she moved
wearily, when she was asked to do anything by her mother,
as though every exertion, however small, cost her an effort.

It was Marjorie who was the life of the party, who saw
at a glance what every one wanted, who was ready to run
here and there for them all; it was Marjorie who carried Carl
up to bed; who picked up her mother's ball of wool when it
fell, and who kept her eyes open all the time to see what
she could do for others, and how she could help them all.
How they would miss her! What a blank there would be, if
she left them! What a sad change would come over that
bright little home when its chief sunbeam was removed
from it!

The pleasant evening came to an end at last, and

Kenneth rose to take leave. Then, for the first time, he
mentioned the object of his visit to Rosthwaite. As he shook
hands with Mrs. Douglas, and thanked her for her great
kindness to him, he said in a low voice—

"I shall not forget my promise."

She pressed his hand affectionately as she whispered—

"God bless you!" And he knew the words came from her
heart.

Then Marjorie ran for the lantern, for there was not a
star in the sky, and she insisted on lighting him to the gate.

"Now it really is good-bye," he said; "the road has been

cleared, and I am off early to-morrow—Miss Douglas—"
 "Yes, Captain Fortescue."

"I have kept my promise to my poor old father as well

as I could."

"You have indeed," she said.

"Now I want you to make me a promise."

"What is it?" she asked.

"I want you to let me know as soon as your plans are

settled where you are going and what you are going to do.
Will you?"

"Yes; I will."

"You won't forget your promise, I know. Good-bye."

History seemed to repeat itself, for, as on the night

before, he heard her calling him when he had gone a few
steps along the road.

"How can I let you know, when I don't know your

address?" she said.

"Of course, I quite forgot I was leaving Sheffield."

He took out a card, and by the light of her lantern, he

wrote on it the name and address of his father's lawyer.

"That will always find me," he said. "Once more good-

bye."

Again he stood at the gate as she climbed the hill, and

when once more, he watched her go into the lighted hall
and close the door behind her, he thought that the night
looked darker and more dreary than before.
 CHAPTER IX
A FINISHED CHAPTER

CAPTAIN FORTESCUE was up early the following

morning, and set off in good time for the morning train.

On his way to Keswick, he passed Louis Verner in

Borrowdale, and stopped the carriage to speak to him. Louis
told him that he had tried to get through the valley the day
before, but had found the road quite impassable. He said he
was on his way to Fernbank to take Mrs. Douglas the
"Standard."

The journey was a cold one, and the Captain was not
sorry to reach Sheffield. He had wired the time of his arrival
to Elkington, and he found a bright fire in the library, and
drawing his chair near it, he opened the pile of letters which
had arrived during his absence from home.

Most of these were bills of his father's, but he came to

one in a lady's handwriting and with a coronet on the
envelope. He opened it, and found that it was a very kind
note from Lady Earlswood, telling him that she had seen in
the "Times" the notice of his father's death, and that she
wished to express her deep sympathy with him in his
bereavement. She also wished to invite him to come to
Grantley Castle on his way back to Aldershot. The house-
party had broken up, but Evelyn was still at home, and they
would all be delighted to see him for as long as it was
possible for him to stay.

He sat down after dinner to write an answer to this

letter, in which he thanked Lady Earlswood for her kindness,
but at the same time politely declined her invitation.

He had finished this letter, and was putting it in the

envelope which he had addressed, when he suddenly
changed his mind, tore up what he had written, and wrote
another letter. He would go to see them, and would explain
his altered position; it would be better so, and if they chose
to drop his acquaintance after they knew all, they could do
so. Berington, he thought, would always remain his friend,
at least he hoped so; but he was not so sure what Lady
Earlswood's view of the subject might be. She was a
thorough woman of the world, and might not care to have
him at her house when she knew how greatly his prospects
had altered.

In a week's time, Kenneth had wound up his father's

affairs, as far as it was possible for him to do so, had
dismissed the servants and taken an affectionate farewell of
the old butler, and had started on his journey to Grantley
Castle. As he stepped that afternoon into the brougham
waiting for him at the station, he felt as if he were
beginning to read the very last page of the first volume of
his life.

A five miles' drive took him to the entrance to the

Castle, which stood on the side of a hill several hundred feet
above sea-level. He drove in at the great gates, which were
opened by the lodge-keeper as the carriage was heard
approaching. The drive was made through a beautiful
avenue of beech trees, and led steeply uphill. The house
stood on a plateau, from which was a glorious view of the
valley below and the wooded hills beyond. The door was
opened by a footman, and Kenneth entered a magnificent
marble hall, filled with palms and other hothouse plants,
tastefully grouped round the lovely statuary, which was of
pure white marble like the portico in which it stood. A flight
of marble steps led him to another door, where he was met
by the butler and, conducted to the library.

Lady Earlswood welcomed him kindly, and Lady Violet,

who was pouring out tea at a small table in the window, told
him how delighted Evelyn was that he could come to see
them. He had been obliged to make a distant call that
afternoon, but would be home in a short time. Then the
conversation turned on the Riviera and the happy month
they had spent together there the year before, and Lady
Violet went for her photo album, that she might show him
the prints of the negatives which he had helped her to take.
Captain Berington came in before they had looked through
them all, and they talked together of the many places which
the photos recalled, the different pleasant excursions during
which they had been taken, and the various amusing
incidents which had occurred whilst they were there.
Kenneth himself appeared in several of them, and as he
looked at these, he wished that he could feel once more the
gay light-heartedness which he had then enjoyed.

Then it was time to dress for dinner, and he went to his

room feeling as if he were in a dream, or rather, as if this
were reality, and the past three weeks had been a
distressing dream from which he had awaked.

He went down to the drawing-room, and found Lady

Violet there before him. She looked very lovely in her pale-
blue evening dress, and the magnificent diamond necklace
which had been her mother's present to her when she came
of age.
 "I'm awfully glad you were able to come," she said in a
low voice.

"Thank you, Lady Violet; I am glad too; I wanted to say

good-bye to you all."

"Why good-bye?"

"May I tell you in the morning some time, if you and

Lady Earlswood could spare me half an hour? I had rather
not talk about it to-night, if you don't mind. I think I should
like to tell you just before I go."

"But you're not going to-morrow; you must stay longer

than that."

"Impossible, Lady Violet! My leave has been extended

more than once, and I'm due in Aldershot to-morrow."

"Oh, what a pity! I thought—"

But what Lady Violet thought, she never told him, for at
that moment her brother and sister came into the room
together, and Lady Earlswood soon followed. And then
dinner was announced.

The dinner-table was covered with the rarest hothouse

flowers and ferns, amongst which were burning numbers of
tiny electric lamps, the brightness of which was reflected in
the shining silver and glass. As Kenneth Fortescue sat
talking to Captain Berington after the ladies had gone into
the drawing-room, he could not help wondering whether he
would ever again sit down at such a table.

The evening passed pleasantly and all too quickly. Lady

Earlswood had the happy gift of making all who came to her
house feel at home and thoroughly at their ease, and she
expressed great sorrow when Captain Fortescue announced
that he must be back in Aldershot the following day.

She looked somewhat surprised when he asked her if he

might speak to her on a personal matter before he started,
and she glanced at Lady Violet, as if she wondered if the
interview he had asked for had anything to do with her. If
so, she was inclined to listen favourably to what he had to
say, for Captain Fortescue was apparently the richest man
of her acquaintance, and certainly the most aristocratic in
appearance. He had no title, which was, of course, a serious
drawback, and she would have to make full inquiry about
his family and prospects before giving her consent. But if
Violet was fond of him, and if all turned out satisfactory,
now that he had inherited his father's money, an offer from
him would, at any rate, have her serious consideration.

Thus Lady Earlswood looked forward with anything but

dissatisfaction to the appointment that she had made with
Kenneth Fortescue, to come to her morning-room after
breakfast the following day.

"You would like to see me alone," she whispered, as

they rose from the breakfast-table and were leaving the
room.

"No, Lady Earlswood; if you do not mind, I should like

all of you to hear what I have to say."

Lady Earlswood was surprised. Surely his private

communication could not be what she had expected.
However, she at once fell in with his suggestion, and soon
the family party was gathered together in her pretty
boudoir.

Then he told them all; he laid before them the story of

his life; he spoke tenderly of his old father, dwelling on his
self-denying love in bringing him up, and educating him
regardless of expense, and in such a way as to make him
(he was ashamed to own it now) even feel out of place in
his own home, and out of touch with his own father. He said
that he had often wished to tell them of this, but a feeling
of loyalty to his father had held him back from doing so.

Then he went on to the cause of his father's death; he

told them of the telegram, and of the terrible news it
contained; and then he spoke of the consequence of that
news to himself; he said that he was on the point of
throwing up his commission, inasmuch as he could not
possibly live upon his captain's pay; that he must now turn
his attention to something which would be sufficient to
provide for him in a quiet and simple way, and which might
also enable him, by means of the greatest economy, to
repay an obligation incurred by his father some years ago,
and for which, as his son, he felt morally responsible.

They did not interrupt him as he was telling this story,

but listened attentively. Lady Violet, with heightened colour,
turned a little away from him as he was speaking, and as
soon as he had finished, she rose and left the room.
 THEN HE TOLD THEM ALL; HE LAID BEFORE THEM
THE STORY OF HIS LIFE.

Lady Earlswood thanked him for speaking as frankly as

he had done. Of course it was the only right thing to do, for,
in their position of life, there were obligations which they
owed to society, and her husband, the late Earl, being dead,
these obligations of course devolved upon herself. She was
very sorry that circumstances, over which of course he had
no control, had occurred to terminate what had been a very
pleasant acquaintanceship. She wished it could have been
otherwise, but she felt sure he would see with her that she
had no choice in the matter. At the same time she could
only repeat that she was exceedingly sorry, and that she
wished very much that it could have been otherwise.

It was just what Captain Fortescue had expected her to

say, and he was therefore neither surprised nor
disappointed. But he felt, with somewhat of a pang of
regret, that he had come to the last paragraph of that last
page of Volume I of his life, as he rose to take leave of her
and Lady Maude.

Captain Berington, who had not spoken once during the

interview, now told him that he was coming with him to the
station, and would join him in a few minutes. As Kenneth
passed through the inner hall on his way to the door where
the carriage was waiting for him, Lady Violet was just
crossing it. She was still very flushed, and he thought that
she had been crying. He went up to her to say good-bye.

"I think you might have told us all this before," she
said.

"I have only known it three weeks myself, Lady Violet."

"Oh! About the money—yes. But about your father—you

knew that. You see, it has put us in a very unpleasant
position."

"I think I explained to you why I did not tell you before;
it was for my poor old father's sake."

"It makes it awfully hard for us."

"It shall not be harder than I can help, Lady Violet; you
need not be afraid that I shall presume upon our former
acquaintance. I know my altered position, and I shall never
forget it, I hope. Good-bye."

"Good-bye, Captain Fortescue."

She did not even shake hands with him as she said it,
but ran swiftly upstairs, and Kenneth passed on through the
marble hall to the carriage waiting at the door.

Captain Berington was most friendly during the drive,

but did not allude to the conversation that had taken place
in his mother's boudoir, until he was standing at the
carriage door just before the train started. Then he grasped
Kenneth's hand, and said—

"You and I can still be friends, Fortescue; of course the

mater has to be particular for the girls' sake, and my
brother, the Earl (you've never met him, I think), is more
particular still; he's obliged to be, I suppose. But I'm only a
younger son, so can do as I like. Good-bye."

The train moved off before Kenneth could answer, and

as it left the station behind, he felt that, in spite of Captain
Berington's friendly words, he had read the very last line of
the last page of Volume I of his life-story, and had come to
Finis.

But as the Captain journeyed on to Aldershot, and

recalled Lady Violet's words, "It makes it awfully hard for
us," he could not help contrasting them with other words,
spoken by another voice, only ten days before, "Please
don't think about us; it is quite hard enough for you."

And, as he thought of the difference between the two

remarks, he mourned less than he would otherwise have
done over the Finis which he had read at the bottom of that
last page.