Upload
dotram
View
217
Download
0
Embed Size (px)
Citation preview
1/15/17
1
Statecrafting:anewapproachtopublicadministrationALASDAIRROBERTSTRUMANSCHOOLOFPUBLICAFFAIRS
UNIVERSITYOFMISSOURI
FivefeaturesofnewapproachHigherlevelofanalysis◦ Thestateasthefoundationalconcept◦ Attentionto"largeforces":statesystem,markets,people,technologies
Longertimeframes◦ Historicalperspective◦ Anticipationoffutureevents
Dynamism◦ Awarenessofcontingency,change,andneedforadaptation
Realism◦ Awarenessofthreatstoauthority,fragilityofinstitutions◦ Needforvigilance,judgment
Normativecommitments◦ Preservingstatecapabilities◦ Promotinghumanrights
TheriseofPublicManagementAssociations:◦ PublicManagementResearchAssociation◦ InternationalResearchSocietyforPublicManagement◦ InternationalPublicManagementNetwork◦ AssociationforPublicPolicyAnalysisandManagement◦ AcademyofManagement,PublicandNonprofitDivision
Journals,suchas:◦ JournalofPublicAdministrationResearchandTheory◦ PublicManagementReview◦ InternationalPublicManagementJournal◦ JournalofPolicyAnalysisandManagement
Degrees,specializations,courses,textbooks,chairs
AimsofPublicManagement"[The]primarypurpose[ofthefieldofpublicmanagement]istodevelopaunderstandingofhowpublic,primarilygovernmental,organizationsmayaccomplishthemissionschargedtothem."JamesPerryandKennethKraemer,1983."Publicmanagementisaboutmakingsurethattheresourcesavailableareusedaseffectivelyaspossibletorealizestatepolicygoals."MarkBevir,2012."Whatispublicmanagement?...[A]napproachthatusesmanagerialtechniques...toincreasethevalueformoneyachievedbypublicservices."TonyBovaird andElkeLoeffler,2016.
"Publicmanagersareresponsiblefortranslatingthegoalsandobjectivesofpolicymakersintotangibleoperatingresults.Publicmanagementistheprocessofensuringthattheallocationanduseofresourcesavailabletogovernmentaredirectedtowardtheachievementoflawfulpublicpolicygoals."CarolynHillandLaurenceLynnJr.,2016.
ImportanceoftimeandplaceHistoricalcontingency:◦ Anenterprisethatemergedasaresponsetotheproblemsofacertainsetofcountriesataparticularmomentinhistory
◦ "aresponsetoasetofspecialsocialconditions" (Hood,1991)
Alreadyestablishedby1970s:stateauthority,basicstatecapacity
Problemsofadvancedwelfarestatesinthelatetwentiethcentury:◦ Mountingevidenceofimplementationfailure◦ Growingcostofentitlementsandservices◦ Concernaboutdeficitsanddebts:taxpayerrevolts◦ "[Thespreadingbeliefthatgovernmentshadbecome'overloaded'andthatWesternstateshadbecomeunaffordable[and]ineffective"(PollittandBouckaert,2011)
Implication:Ifconditionschange,ideasmayfall"outofsync"withrealities
Problem#1:Neglectofbigquestions"PAhaslostsightofthebigpicture."ChristopherPollitt,2016
"[S]uch 'bigquestions'asthepoliticaleconomyofadministrativereformanditsevolution overtimewereacentralfocusofthefieldhistorically.Thisisnolongerthecase."RobertDurantandDavidRosenbloom, 2016"[P]ublic administrationneedstoreturntothinkingaboutthe'bigpicture'ratherthanthefragmentsthatdominatemuchofthecontemporaryworkinthediscipline."GuyPetersandJon Pierre, 2016"Thereisaneedforpublicadministration...toaddressthebigissuesthatcontemporarypoliticalsystemshavetodealwith." PerLaegreid,2016"[B]ig questionsaboutstatecapacityandlegitimacygolargelyunaddressedbyleadingresearchersandjournalsinourfield."Brint Milward, 2016"[I]tisalsoimpossibletoignorethecomplaintsofpractitionersandtheoristsoutsidethefieldthatpublicmanagementismissingbigtrendsandthepotentialforbigimpactsonbigquestions."DonaldKettl,2016
1/15/17
2
Problem#2:Presentismandmyopia"Thestudyofpublicadministrationpayslittleattentiontohistory....[S]ystematic traininginresearchandmethodsofadministrativehistoryissorelymissinginpublicadministrationhighereducation."JosRaadschelders,2010
"[T]hepasthasbeensqueezedoutofcontemporaryacademictreatmentsofpublicmanagement."ChristopherPollitt,2008
"[P]ublic administrationresearch[isnot]taking'time'anywherenearasseriouslyasisdonebyotherfieldssharingtopicalinterestswithpublicadministration."RobertDurantandDavidRosenbloom,2016
"Governanceresearchandteachingruntoomuchbehindthefacts.Itshouldalsobeaheadofrealities."Geert Bouckaert,2017
Problem#3:NeglectedpartsofgovernmentBouckaert andPollitt,PublicManagementReform,2011:◦ "thestandardtextinthefield"◦ Wordsnotintheindex:borders,crime,defense,military,nationaldefense,nationalsecurity,police,policing,terrorism,war
Whatisassumedtobeavailableinadvancedcountries:◦ Functioninglegislativebranch◦ Mechanismsforcollectingrevenue,makingandexecutingbudgets◦ Civilpeace◦ Mechanismsforenforcementoflawsandorders◦ Absenceofcorruption◦ Merit-basedpersonnelsystems
Problem#4:InattentiontofragilityPublicManagementasa"globalenterprise"?
Fragilestates:thoseinwhichfundamentalaspectsofstatehood,suchasauthorityandlegitimacy,arenotwellestablishedFragileStatesIndex:◦ 53of178statesarestable◦ 125of178statesarefragile◦ 66of178statesareon"highwarning"or"alert"lists◦ 9 of10mostpopulousstatesarefragile
Andinso-called"stable"states,"bigquestions"about:◦ Borderintegrity◦ Legitimateuseofforce◦ Dysfunctionalityofmajorinstitutions◦ Divisionbetweenracialandreligiousgroups,socialclasses,sections
Contrast:ClassicalviewofPA"[T]hefieldofadministration...needstoberelatedto [theoryabout]theroleofthestateinhumanaffairs. Theendsofadministrationaretheultimateobjectsofthestateitself."LeonardWhite,1948
"Theideaofthestateistheconscienceofadministration.Seeingeverydaynewthingswhichthestateoughttodo,thenextthingistoseeclearlyhowtodothem."WoodrowWilson,1887
"Administrativedevelopments...cannotbeunderstoodunlesstheyarerelated(1)totheirownorganicpastand(2)tothecompulsionsoftheenvironmentinwhichtheyexist."LutherGulick,1948
"Thestatemustalwaysberediscovered....Almostassoonasitsformisstabilized,itneedstoberemade."JohnDewey,1927
LeonardWhite,IntroductiontotheStudyofPublicAdministration,1948
1/15/17
3
Whathappened?FragmentationInternationalrelationsoccupiesterrainofdiplomacy,defense
Statebuilding literatureoccupiesterrainofpublicadministrationinfragilestates
AmericanPoliticalDevelopment examinestheprocessofstatebuildingintheU.S.context
Allthesecommunities,andPublicManagement,exploreaspectsofpublicadministration,butwith:◦ Differentfunctionalemphases◦ Differentgeographicemphases◦ Differenttemporalframes◦ Differentviewsaboutpossibilityofinstitutionalchange
WhatanewapproachtoPAmustdoReintegration ofthefieldandarevival ofoldwaysofthinking
Improveourhistoricalunderstandingandself-awareness
Improveourcapacitytoaddressbigor"regime-level"questions
Developamorecompleteviewofgovernmentalresponsibilities
Overcomethedivisionbetweenfragileandstablestates
Improveourcapacitytoanticipatenewchallengesforgovernment
ElementsofanewapproachStatesmustaddresssixproblems:◦ Managingrelationswithotherstates◦ Maintainingexternalsecurity:threatsfromrivalstatesandnon-stateactors◦ Establishinginternalcontrolandlegitimacy◦ Promotinghumanrights◦ Financingstateactivities◦ Promotingeconomicgrowth
Statesdevelopstrategies forprioritizingandaddressingtheseproblems◦ "Liberalstatebuilding,"the"Chinamodel,"the"welfarestate"
PAisconcernedwithdevelopmentofinstitutionsneededtoexecutestrategies◦ Design,givenuncertainty,inconsistency,controversy◦ Consolidation:submission,normativecommitment,investment◦ Management:delegation,monitoring,discipline,coordination
Fourthchallenge:adaptationConditions arealwayschanging:◦ Externalrivalsandenemies◦ People:characteristics,distribution,andmovement◦ Markets◦ Technologies◦ Disease◦ Nature
Andchangesinideas:◦ aboutprioritiesandtechniquesofaddressingproblems
Thatcreatethechallengeofadaptation◦ Needforcapacitytoanticipateandrecognizechangingcircumstances◦ Needtoavoid"over-commitment"◦ Inventionofnewstrategies,newinstitutions◦ Deconsolidation:Overcoming"vestedinterests"
FivefeaturesofnewapproachHigherlevelofanalysis◦ Thestateasthefoundationalconcept◦ Attentionto"largeforces":statesystem,markets,people,technologies
Longertimeframes◦ Historicalperspective◦ Anticipationoffutureevents
Dynamism◦ Awarenessofcontingency,change,andneedforadaptation
Realism◦ Awarenessofthreatstoauthority,fragilityofinstitutions◦ Needforvigilance,judgment
Normativecommitments◦ Preservingstatecapabilities◦ Promotinghumanrights
1/15/17
4
WhyitmatterstodayChangesinconditions:◦ Changedexternalthreats◦ Socialandpoliticaleffectsofeconomicglobalization◦ Demographicshifts◦ Technologicaladvances
Andchangedideas:◦ Aboutthebenefitsof"openborders"◦ Aboutthecapacitiesofgovernment
Leadstodissatisfactionwitholdstrategy◦ Concernforexternalsecurity◦ Dissatisfactionwitheconomicperformance◦ Declininglegitimacyandanmore"massincidents"
Needfornewstrategy– andrenovatedinstitutions