Transcript The Public in Public Management

The Public in Public
Management
Andrew Graham
Plan for Today
Public Sector Values
Public versus Private Management
Public Sector Landscape
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The Idea of Public Administration
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The Idea of Public
Administration
Policy, Direction: The
Public Good to be
Achieved: the Policy
Process
Accounting,
Evaluating and
Reporting
Resourcing the
Policy Objectives:
the Budget
Process
Delivery the Public
Good: Operations,
Management and
Control
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How Does
Management
Fit into the
Public
Policy Cycle?
Policy, Direction: The
Public Good to be
Achieved: the Policy
Process
Planning,
Design,
Feedback,
Feasibility
Measuring,
Reporting, Revising
and Adapting
Resourcing the
Budgeting, Staffing,
Policy Objectives:
IT, Infrastructure
Service, Control,
Operations,
Monitoring,
Adaptation
Delivery the Public
Good: Operations,
Management and
Control
the Budget
Process
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Accounting,
Evaluating and
Reporting
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Is it what governments do?
Is it direct action or indirect? Examples?
Is it public policy?
Is it defined and confined in law?
Is regulation public administration?
Is it patronage, spreading out the public purse?
Is it theft?
Is it collective protection of the weak and guardian of
fairness?
• Is it a profession?
• Is it just management? Can it exist without management?
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What is public administration?
Implement
Regulate
Record and
Preserve
Account
Control
Service
Punish
Protect
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• Laws or legally founded rules that create the structure of
the administrative apparatus of the state.
• Delegation through law of specific powers and
responsibilities to the administrative apparatus to carry on
the work of government
• Continuing democratic supervision of administrative
activities through the executive which directs activities
within the public administration apparatus...
• Accountability vested in the political executive to the
legislature.
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Defining characteristics of public administration
• A non-political administrative apparatus that is subject to
policy direction but not partisan.
• Forms of interaction between policy makers and policy
implementers
• Forms of interaction among policy makers, implementers
and those affected by the policies
• Delivery of services based on law and public resources
• Oversight of delivery by others
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Defining characteristics of public administration
Executive
Legislative
Oversight
Media
Audit
Ombudsman
Redress
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Reporting
Defining characteristics of public administration
Myth of
Third Party
Delivery
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• Continuity of accountability and public oversight even when
the administrative apparatus is at arms length from
traditional government or contracted to independent third
parties (private or voluntary groups).
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Ten Minutes: Five
Public Sector Values in
Canada and their
impact on delivering
public goods.
Operational –
what we do
Ascribed –
what others
would say
Public
Sector
Values
Negative
Positive
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Aspirational –
what we put
on plaques
The individual principles or
qualities that guide
judgement and behaviour.
• Often confused with ethics
• Ethics = what we view as right/wrong or good/bad
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Defining values
Why values ?
• All decisions are value driven
• Different types of organisation will employ and encourage different
types of value sets
• Key part of organisational culture
• Absence leads to dilemmas - ethical, organisational, political
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• Concept of values fundamental to all aspects of government and
administration
• Shape and inform behaviour
Why values ?
• Determine the success or failure of reform
• Significant changes over last decade
• What can the different parts of the service tell us?
• Local v. central
• Higher v. lower grades
• Administrative v. technical etc
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• Enduring, Adapting or Competing?
Values and Public Service: the John Tait
Framework
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Loyalty to government
Non-partisanship
Equity
Candour to political masters
Discretion
Service to people
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• Democratic Values:
Values and Public Service: the John Tait
Framework
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Excellence, economy and effectiveness
Objectivity and impartiality in advice
Telling truth to power
Fidelity to the public trust
Emerging
Values?
• Ethical Values: integrity, honesty, impartiality, probity,
trustworthiness, respect for law and careful stewardship of
public resources.
• People Values: courage, moderation, decency, humanity,
civility, tolerance, courtesy.
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• Professional Values:
Values Tensions
• Inevitable
• Growing number of tasks and expectations
• Frequent ambiguity of goals and relationships
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Maintaining standards v. Adapting to new circumstances
Responding to needs of different stakeholders
Need for control v. need for discretion
Managing up vs Managing down
• Conflicts are normal – coping with them is the issue
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• Occur in relation to
• Discuss an experience that one
member of the table had or that you
saw in another organization where
values were in conflict.
• Prepare to share it with the group.
• We can then discuss such conflicts
with these stories.
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Table Discussion: Tell a Story
Bureaucratic Values: Are They Always
Bad?
• What are the bad old
bureaucratic values?
• Do these necessarily contradict
the public interest?
Challenges to traditional values
• New modes of governance – state and market
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NPM or market-based reforms
Agencies – ORNGE, Cancer Ontario,LCBO
Generational shifts
More information, more openly available with less control over
its use
What else?
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• Greater fluidity, stakeholders
• Savoie, 2006, arguing that even Westminster models vested
roles in management to bureaucrats, but they remained
essentially anonymous: this is changing
• Clearer in municipal government, hospital and educational
administration
• Agencies are more visible
• Emergence of more visible pubic administrators working for
government with a strong penchant for message control
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Seen but not Heard? Does the
public manager have a personality?
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Public Versus Private
Management
Public versus Private: a whole
lot of difference?
• Discussion:
2.
What are the principles differences between public and
private sector management and administration?
What are elements that are the same?
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1.
Private Vs. Public Sector Management
2. Continuity of leadership to
implement long range plans.
3. Excess funds distributed as
a bonus or salary increase.
4. Objectives measured by
results. (Profit)
5 Anonymity, isolation from
the media.
1. Structure may be influenced by
outside and special interest
groups.
2. Time for accomplishment
limited by the election
process.
3. Punished for operating below
budget.
4. Objectives measured by
process. (Programs)
5. High visibility, pursued by
the media.
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1. Authority to revise the
organization and key positions
6. Reduce costs by selectively
cutting specific projects.
6. Reduce costs by across-theboard program cuts.
7. Rewards for achievement.
7. Punishment for failure.
8.Selects “Expert” board to set
general operating policies.
8. Must educate a volatile
authorizing environment to
the policy setting role.
9. Operations geared to
effectiveness.
10. Top management
evaluated by overall
effectiveness.
9. Operations geared to
efficiency and coverage.
10.Top management evaluated
by dramatic incidents.
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Private Vs. Public Sector Management
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Sector Envy
From a report by IFF Research, a UK HR research firm, reported in the Guardian, January 2010,
http://www.theguardian.com/money/2010/jan/23/public-private-sector-grass-greener
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Is the private sector
more efficient than
the public sector?
• Commercial organisations are risk averse.
• Profit margins are easier to secure where there is
predictability.
• But much of what the public sector does is relatively
unbounded
• Public sector’s capacity for risk pooling and cross
subsidy can actually permit it to take on more risk
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Heretical View: Risk averse nature
of private sector organisations
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The Public Sector Landscape
- Fred Thompson, The Three Faces of Public
Management, International Public Management Review,
2008
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“Managers are always on “rough
ground” where values, feelings,
affect, and ambiguities are
simultaneously in play.”
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Complexity
Interoperability
Inter-dependence
Contested results
Breadth of instrumentality
Contingency response and redundancy
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Public Sector Management
Landscape
• Today, a strong focus on what is wrong in public
administration
• Do the values of efficiency and service actually conflict with
values of social support and community sustainability?
• Do threats such as terrorism trump due process?
• Is the value that public administration adds changing? From
social welfare to security interoperability?
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Does public administration have a
values problem?
Bureaucracy: What Government Agencies Do and
Why They Do It
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“Public management . . . is a world
of settled institutions designed to
allow imperfect people to use
flawed procedures to cope with
insoluble problems.”
- James Q. Wilson
• At the heart of public
administration, even
at times of change, is
the notion of a
predictable, stable
support to the
democratic process,
even at times of
change.
• “While reform, change,
and adaptation of
contemporary national
administrative systems
may be nearly universal,
it follows centuries of
reform, change, and
adaptation that have
resulted in national
institutions whose
function is to guarantee
a certain stability and
continuity in democratic
governance.”
Laurence Lynn, “Public
Management: Old and New”
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Key Themes
• The capacity of a public administration to
deliver the political will.
• The inter-relation between the formation
of that will and its execution – the policy
advice role of public administration.
• The tension between change and
continuity, especially at the political
interface
• Getting, using and accounting for the
right mix of resources to get the job
done.
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Key Themes
Tensions faced by public administrators
• Efficiency v. Effectiveness
• reaching public goals or measuring activities?
• Responsiveness v. Accountability
• responding to public needs or filling out reports?
• Difference between outputs and
outcomes
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And then there is New Public
Management……
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What Changed
• Hierarchical, bureaucratic principles
• far more diligently, far longer in the public sector.
• Direct provision
• standard operating procedure.
• Political and administrative separate
• policy or strategy the preserve of political leadership.
• Professional bureaucracy
• employed for life, serve any political master equally
• New paradigm challenges fundamental
principles of public administration
Old Models Fall
• Delivery by bureaucracy is not the only way to provide
government goods and services.
• Flexible management systems pioneered by the private
sector are being adopted by governments.
• Governments can operate indirectly.
• Political and administrative matters intertwined
• Public demands better accountability
• Case for unusual employment conditions weaker.
New public management:
central doctrines
• No book but…
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focus on management, not policy
performance appraisal and efficiency
disaggregation of public bureaucracies
user-pay relationships
use of quasi-markets and contracting out to foster competition
cost-cutting; output targets; limited-term contracts; monetary’
incentives; freedom to manage.
NPM: implies
• Substantial changes for personnel
• Osborne and Gaebler:
• government needs to be ‘reinvented’
• bureaucracy neither necessary nor efficient
• other means should be used.
• “Entrepreneurial governments” promote competition
between service providers.
• Pushing control into the community
• Measure performance by outcomes.
NPM: the mission
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Redefine clients as customers
Offer choices
Prevent problems before they emerge
Earning money, not simply spending it
Decentralise authority
Participatory management
Preference for market mechanisms
Energising all sectors — public, private and voluntary —
to solve their community’s problems.
NPM: the legacy
• Great focus on measurement
• Greater involvement of private (profit and not-for-profit) in
delivery
• Disaggregation of policy formulation
• Rise of agencies and arms-length organizations within
government
• Clear issues of how to exercise accountability for these
• Novel financing arrangements
• Transfer of risk to private sector
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• Much has changed in public administration as a result of NPM
• Scattered and inconsistent
• Some trends very clearly would have spun out on their own:
• Concepts of complexity and globalization
• An increasing number of public policy issues call for the active
contribution of many actors across and beyond government
• Working in networks
• Working through others
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Emergence of the New
Governance
• Government as steering not delivering
• Concept of nudge
• Value challenges: non-traditional relationships, less process
control leads to less outcome control, forces a concept of
policy design based on reverse engineering
• A riskier landscape with less direct control
• Concept of resilience and capacity to respond to unpredictable
outcomes and events
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Emergence of the New
Governance
Emergence of the New
Governance: Value Challenges
“Above all, it may be time to rediscover some very old concepts
of the public good, collective interests, democracy, civics and
citizenship and to explore their meaning in the changing
landscape of today’s reality.”
- Jocelyn Bourgon, Public Purpose, Government Authority and
Collective Power
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• Collaborative Values
• Citizen engagement
• Holding onto core values
Coming Up: A Management Framework Must
Address the Following Issues
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People
Finances
Infrastructure
Information and Knowledge
• Performance Indicators
• Reporting and accountability
Next Month
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• Mission, Vision, Values – more permanent
• Objectives, goals, direction
• Delivery Elements