Issues in Public AdministrationMPA 509

Evolution of Public Administration

Agenda • Preview of the Last Lecture • Theories of Public Administration (from last lecture)• Public Administration • Definitions• Concerns• From the Academic Perspective • Taylor's Approach • POSCORD• Post World War• Decade 1970s till 1980’s • Decade 1980s till 1990’s • Late 1990s• Conclusion

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Context Key Values ProponentsDominant/Theories/Themes/Sub-/Principles/Issues Concepts

3. New Public Late 1960s to 70’sAdministration Widening gap between

the rich & poor Racial discrimination Watergate scandal Cold War Vietnam War

Equity Minnowbrook Disparities existed because PA Responsiveness Conference has focused less on social Relevance H. George purposes or values of government Adequacy Frederickson policies and programs on the Client-orientedness economy and efficiency of

- protect & promote executionwelfare of the The value-free and neutral stancedisadvantaged of traditional PA has alienated thegroups less privileged and deprived

groups in society According to New PA Proponents,

public administrators should notbe neutral; they should becommitted to both goodmanagement and social equity asvalues to be achieved

Advocated: client-orientedadministration, non bureaucraticstructures, participatory decision-making, decentralizedadministration, and advocateadministrators

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Context Key Values/Principles/IssuesProponents Dominant/Theories/Themes/Sub-Concepts4. New Public Management

Poverty Sustainable human Hammer & ReengineeringLow standards of living development Champy o Fundamental rethinking and radical Globalization Improving human Ted Osborne and change of processes (Hammer and Economic Integration conditions David Gaebler Champy)

Participation and

UNDP

o Improvement (and, if necessary, overhaul)empowerment of ADB of systemsstakeholders WB Reinventing

Improve government o Catalytic government: Steering thanoperations rowing

Streamline bureaucracy o Community-owned Government - Rational public Empowering rather than serving

policymaking o Competitive government : injecting Strong democracy competition into service delivery Rule of law o Mission-Driven Government: Funding

outcomes, not inputsoCustomer-Driven Government: Meetingthe needs of the customers, not thebureaucracy

Enterprising government: Earning ratherthan spending

o Anticipatory government: Preventionrather than cureo Decentralized government: From

hierarchy to participation and teamworko Market-oriented government: leveragingchange through the market

Public Choice Theory Governance

o Accountabilityo Transparencyo Predictabilityo participation

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Integration

After World War 11,public administrators went througha period of self-doubt and self-criticism. For many of them,being good policy implementers and managers was nolonger enough. The scope of their role and concernschanged from that of being responsible for the traditionalplanning, organizing, staffing, reviewing, and budgetingactivities to a much broader charge. Public administratorsrealized that study of the organization should encompassthe study of human behavior and study of budgeting shouldinclude the study of theory as well as practice.

Ann Prentice 1984

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New Public ManagementThe ideas of “new public

management” and “reinventinggovernment” were essentially born outof the continuing search for solutions to

economic problems in 1970s and toproduce a government that “works

better but costs less.”

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Reinventing GovernmentThe idea of “reinventing government” was advanced by Osborne and Gaebler in 1992. Theirconcept of NPM was sparked by the use of businessmodel prescriptions for government i.e. using privatesector innovation, resources, and organizational ideasto improve the public sector.

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Reengineering OrganizationsAnother similar movement was“reengineering organizations.” This term was

coined by Michael Hammer (1990) in an articlepublished by the Harvard Business Review.

Reengineering offers an approach forimproving performance, effectiveness, andefficiency of organizations regardless of thesector in which they operate.

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According to Hammer and Champy (1993),“reengineering is the fundamental rethinking andradical redesign of business processes to achievedramatic improvements in critical contemporarymeasures of performance, such as cost, quality,service, and speed.” (Hammer and Champy 1993as cited in Halachmi 1995: 330).

Public Administration

• Public administration is both an academic discipline and a field of practice;

• Public administration houses the implementation of government policy and an academic discipline that studies this implementation and that prepares civil servants for this work;

• As a "field of inquiry with a diverse scope" its fundamental goal is to advance management and policies so that government can function;

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Definitions

• "the management of public programs" • "translation of politics into the reality that citizens see

every day" • "the study of government decision making, the

analysis of the policies themselves, the various inputs that have produced them, and the inputs necessary to produce alternative policies”

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Phases in the Evolution of Public Administration

• Phase• Indicative Period• Traditional / Classical Public Administration• 1800s to 1950s• Modern Public Administration• Development Administration (1950s to 1960s)• New Public Administration (1970s)• New Public Management (1980s to 1990s)• Reinventing Government (1990s)• PA as Governance (1990s to the present)

post–world war II to the 1970s

• There was a call by citizens for efficient administration to replace ineffective, wasteful bureaucracy. Public administration would have to distance itself from politics to answer this call and remain effective. Elected officials supported these reforms. Brownlow, a University of Chicago professor ,subsequently founded the Public Administration Service (PAS) at the university, an organization which has provided consulting services to all levels of government until the 1970s.

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post–world war II to the 1970s

• Concurrently, after World War II, the whole concept of public administration expanded to include policy-making and analysis, thus the study of ‘administrative policy making and analysis’ was introduced and enhanced into the government decision-making bodies. Later on, the human factor became a predominant concern and emphasis in the study of Public Administration.

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post–world war II to the 1970s

• Henceforth, the emergence of scholars such as, Fritz Marx with his book ‘The Elements of Public Administration’ (1946), Paul H. Appleby ‘Policy and Administration’ (1952), Frank Marini ‘Towards a New Public Administration’ (1971), and others that have contributed positively in these endeavors.

• Public administration can be defined as a department in the executive arm of government responsible for the formulating and implementing government policies and programs.

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1980s–1990s

• In the late 1980s, yet another generation of public administration theorists began to displace the last. The new theory, which came to be called New Public Management, was proposed by David Osborne and Ted Gaebler in their book Reinventing Government. The new model advocated the use of private sector-style models, organizational ideas and values to improve the efficiency and service-orientation of the public sector.

• During the Clinton Administration (1993–2001), Vice President Al Gore adopted and reformed federal agencies using NPM approaches.

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1980s–1990s

• Some modern authors define NPM as a combination of splitting large bureaucracies into smaller, more fragmented agencies, encouraging competition between different public agencies and encouraging competition between public agencies and private firms and using economic incentives (e.g., performance pay for senior executives or user-pay models.

• NPM treats individuals as "customers" or "clients" (in the private sector sense), rather than as citizens. 17

1980s–1990s

• Some critics argue that the New Public Management concept of treating people as "customers" rather than "citizens" is an inappropriate borrowing from the private sector model, because businesses see customers are a means to an end (profit),

• In New Public Management, people are viewed as economic units not democratic participants. Nevertheless, the model is still widely accepted at all levels of government and in many countries.

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late 1990s–2000

• Another new public service model is what has been called New Public Governance, an approach which includes a centralization of power; an increased number, role and influence of partisan-political staff; personal-politicization of appointments to the senior public service; and, the assumption that the public service is partisan for the government of the day.

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1980s–1990s

• In the late 1980s, yet another generation of public administration theorists began to displace the last. The new theory, which came to be called New Public Management, was proposed by David Osborne and Ted Gaebler in their book Reinventing Government. The new model advocated the use of private sector-style models, organizational ideas and values to improve the efficiency and service-orientation of the public sector.

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1980s–1990s

• Some modern authors define NPM as a combination of splitting large bureaucracies into smaller, more fragmented agencies, encouraging competition between different public agencies and encouraging competition between public agencies and private firms and using economic incentives lines (e.g., performance pay for senior executives or user-pay models.

• NPM treats individuals as "customers" or "clients" (in the private sector sense), rather than as citizens.

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1980s–1990s

• Some critics argue that the New Public Management concept of treating people as "customers" rather than "citizens" is an inappropriate borrowing from the private sector model, because businesses see customers are a means to an end (profit), rather than as the proprietors of government (the owners), opposed to merely the customers of a business (the patrons). In New Public Management, people are viewed as economic units not democratic participants.

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late 1990s–2000

• In the late 1990s, Janet and Robert Denhardt proposed a new public services model in response to the dominance of NPM. A successor to NPM is digital era governance, focusing on themes of reintegrating government responsibilities, needs-based holism, and digitalization (exploiting the transformational capabilities of modern IT and digital storage).

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late 1990s–2000

• Another new public service model is what has been called New Public Governance, an approach which includes a centralization of power; an increased number, role and influence of partisan-political staff; personal-politicization of appointments to the senior public service; and, the assumption that the public service is partisan for the government of the day.

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Quote of the Day

• There is no higher religion than human service. To work for the common good is the greatest creed.

Woodrow Wilson