models of public admin

7/29/2019 Models of Public Admin

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tb Models of PublicAd m i n istration Reform :


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eThree well-known "models'of reform in public

adm inistration and managementThese models are :I . Reinventing government"-(Osborne and Caebler, I 993),Hammer and ChaffiPy, I993),and the2. Business process reengineering" -(doctrines of the QgeryZellenfor Economic Cooperation anA -.-...*DevG@ (OECD) countries3. t{Ew public Management (Hood, I 995,-1996; Kickert et al., I 997)


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oRei nventing Covern ment"

(osborne and Gaebler, I g93),#


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According toreinvention is a

the authors,"(r)evolutionarychange process" that had happened.D before in the prog ress ive and NewDeal eras in the U.S. and has beenoccurring again in local governmentsand elsewhere.

J Reinventing Gove rn ment wasto map out "a radically newdoing business in the publicwrittenway ofsector"xviii).fne and Gaebler, I993:


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The mode ! re p rese nts a bas ic,"paradigm shift" from the New Dealparadigm of 1930s to 1960s towardthe *entrepren,euridl government"model that they now advocate.Consist of ten principles6,


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Ten (10 ) PRINCIPLES Constituting a WorkAgendaPrinciples related to the structure of the state1 .The state will provide directly, through its statutorycivil service, only the specific activities of state, i.e.,the activities that involve the use of state power, orthat control the state's resources.2.Among the other activities, auxiliary activitiesr should be distinguished from the provision of social {and scientific services. The former s hou ld becompetitively outsourced to business enterprises, thewith non governmental

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Principles related to civil servlce , __^-r3.Public administration will be based onprofessional and high level civil service, recruitedand promoted according to merit, and trainedaccording to the ethos or the public interest, wellpaid, ano motivated by a variety of incentives.4.pubric officiars will be committed toeffectiveness of the state organ ization and to therule of law while applying in a contemporarY way

the classica I princi'ples of bu rea ucraticpu blic

administration; to efficiency or the reduction of costand to the increase of the quality of public services,while managing public services according to the

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Principles related to management practices5. In a world where technological and social changeis increasing ly fast, pu blic officia Is a re su pposed tobe more autonomous in taking decisiofls, and, as atradeoff, they, as well as the agencies that theymanage or to which social and scientific services areoutsourced, are supposed to be more accountable tothe state organization and to society.6. Increased accountabilitythe combination of theadministrative supervisionrecent methods ofmanagement by

will be achieved throughclassical mechanisms ofauditing with the moreresults, managed competition forthe use of social accountabilitY


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legal institutions are wellues and moods, and as

be additionallyfu ll tra nspa rencyof the Internet.

be achieved in so faradapted to society'spublic officials are (

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committed to the ethos of public service.I be assu red in so fa r as. Increased efficiency wiautonomous public officials are able to choose themeans to achieve the accorded objectives, feelproud for the results attained, and are accordinglyrewarded.

Increased efficiency will additionally be achievedinformation

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7. Increased accountability willachieved through the adoption of aextensive useolicy, which involvesIncreased effectiveness wi I I

Spread adoption of


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.Most entrepreneurial governments promoteCompetition between service providers.

.They empower citizens by pushing control outof the bureaucracy, into the community. c

.They measure theagencies, regulations. performance of their

.They redefi ne their clients as customers a ndoffer them choices... 6

.Theyrath e r prevent problemsthan simply offeri ngbefore they emerge,services afterwa rd.


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.They put their energies intospending it. not simply

.They decentralize authority, embracingpa rticipato ry ma nagement.They prefer market ' mechanisms tobureaucratic mechanisms.

simply on providingon catalyzi ng alland voluntary-intoaction 1993: 19-20).

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p Reengi neeringOr *BPR" BusinessProcess Reengineeri ngr (Hammer and ChamFY, I 993),


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Reengineering or *BPR" ,,iS thcfundamental rethinking and radicalt redesign of businesJ processes toachieve dramatic improvements incritical contemporafi measures ofperformance, such as cost, qualityservice and speed.It means tossin g Aside Old system and (starting over, of "going back to thebeginning and inventing a better way

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MODELS OF PUBLIC ADMINISTRATIONREFORMApart by the 19th century pri nciples of the divisionof labor (Hammr, as cited by Fowle[1997: 36-37).According to Fowler; its many features include thefollowing resu lts of the desired cha ng"t

:

( 1) Sepa rate, sim ple tasks a re com bined intoskilled, multi-functional jobs.(2) The stages in a process are performed in theirnatu ra I orden(3) Work is performed where itparts of the process may thus be4) The volume of checki ng and is best done-someout-sourced,control of separate


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(5) There is totalprocesses, the naturemanagement methods,kvalues and beliefs.

compatibility betweenof jobs and structur,and the organization's f

(6) IT is recognized and exploited as offeringmany opportunities for the redesign of the worksystems and the provision of information toenhance devolved decision-making. {p (7) Processes may have multiple versions to


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(8) Managerial hierarchies andorgan izational structures are flattened'(9) Rewards are given for the achievementof results, not simply for,activity.( 10) Work units (i.e ., Sections ordepartments) change from functional unitsto become process (often "case") teams.( 11) Customers have a single point ofcontact with the organization.

Gr


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The following attributes, as importanta process,i lestones i n Ree ng i neeri ng(Halachffii, 1995: 331).( 1) evaluation of whether a process isnecess dry, given the mission of the

organ ization;(2) breaking away from traditional wayse and procedures to start with a clean slate;(3) looking at business processes from across- functional Perspective;


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(4) searching radical improvements usingthe power of information technologY;(5) reduction and elimination of paperwork and documentation;(6) focusing on processes and theirthebased

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outcomes; and (7) focusing oncustome[ the consumer or the clienton their needs and preferences


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New Public ManagementOr rt NPIfi"(Kickert, I 997 733) {


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ruHW Manf;IHementA management phllosophy used by gouernments since the198SE to modernfge fhe pu&ffc secfer. New public

rnanaseilnent is a hroad and vefy csnTlplex term u'sed todescribe the wave sf puhlic sector reforms throughoutthe world since the L380s" The raain hypothesis in theNpM-reforil'n wave is that r?Tor"e mmrf


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PM: Cnnceptuel BasesStarted by develnped Eountries two d:ecades ago becauseof the faiture of traditional pu:hlic administration. {i.e"Weber.ian typesl'-The task uras to put the pu blic sector more ma rket*ol'iented and prlvate*sector sriented.Its focus is Ehifted frsrn traditi*na[ public admlnlstratisnto public ffta nagemefit, wh ich puts ernphasis ondecen trsliz,ed Jnontrgemenf within public services,rncres"$ed rJse of rntrrl{ets and rormpefffforrs in theprovision of puh*lic services and fncressed emphssis ol'Iperfon?'? sncer oufpufs and rustolrler s#entsffon {Larhl,lggg).

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PM: fiuildlng Pr'[nciplesan ernphasis on hands*on professisna[ management skifor active, visihle, discretisna]'y csntrsl of organizations{freedonr to manage}explicit standards and measures of perfonnance throughclarificaticn of goals, targets anU indicatarE nf successa shift frsm the use of input controls and hureaucnaticprocedures to rules nelying on output contrnNs measuredhy quantitatiue performa nce indicatorsa shift frcm unified management systerns todisaggresatian or decentralization of units in the publicsector

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NPM is "active control of publicorganizations by visible topman agers wielding discretionarYpower" (Hood, 1996: 268)."f et managers manage!" is oneNPM slogan in some countries(Australia, Sweden) by loosening upconstraints on their discretion, butc elsewhere it is \\ Make managersmanag el" by forcing them tocompete in the market (Kettl, 1997:


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&.,NPM is "shorthand for a group ofadrninistrative doctri nes" in the reformagenda of several OECD countriesstarting in the 1970s. ,6p4fii,r,r"r",*t, p/.,frnnnruo CbtHr4TVo "t"A new paradigm for publicmanagement" had emerged, witheight characteristic "trends"(According to the OECD (Kickert,


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M: I ilharacter TrendsE" Strengthening steeriilS functlans of the centralgoverilrTtent

ilevolving authority, providing fiexi bilityilnsuring perforrnance, control, aCCou ntabilitylrnproving the management of human resourcesS pti rrrlzins information tech nologyDeveloping competition and choicelmpravinH the quality af regutrationProviding responsive service

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NPM reforms shift the emPhasis fromtraditional public administration to publicmanagement,Key Elements1. Various forms of decentralizing management(within public servicesEx, Creation of autonomous agencies and devoof budgets and fi nancial control), ution2. Increasing useprovision of publicEx. Contractingmechanisms), and

of markets and competitionservices n theout a nd other market-typeon performance, outputs and

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NPM reforms - driven by acombination of economic, socidl ,d,, politicalfactors, and technologicalNPM route has been the experienceof economic and fiscal crises, whichtriggered the quest for efficiencyand for ways to cut the cost ofdeliveri ng pu blic services


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Most of developing countries,_ reforms in public administrationc and manag"rent is drivenmore by external pressaresand have taken place in thecontext of structuraladi ustment prog ra m mes,


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Other drivers of NPM - type reformsinclude the ascendancy of neoliberalideas from the late l97os, ther; development of informationtechnology, and the growth and useof international ' managementconsultants as advisors on reforms,Additional factors, in the case ofdeveloping countris, include lendingconditionalities and the increasingemphasis on good governance,

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Elemenfs of NPM1. Management

services,decentra lization within public

2. Downsizing, Ex. include autonomoushospitals in Ghana, zimbabwe and Sri Lanka, aswell as the hiving-off of the customs and excise,and internal revenue departments to formexecutive agencies in Ghana and Uganda.a nd usertransport,agriculture


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The adoption of these NpM practices seemsto have been beneficial in Some casesEx. cost Savings in contracting out roadmaintenance t there are both potential forand real Iimitations to applying someelements in cri sis states.,The limited experience of NPM in suchstates su ggests that there are institutionaland other problems whose persistence maybe binding constraints on implementation.

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{*UPM iln ths FhiillppineslUpM is not a new concept in the philipplnes. Having

experienced suf;cessive economic and fiscal crises of itsown, the philippines hes to continuously laok fora lternatiue models of Soverna nce. rq Fhfl, whichernphasizes efficieilcy and effectiveness at the least costpassihle, proved to be an attractive anternative totraditiona I public adrn inlstratlon "

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fFscfsrs fonfrf&uffng fo ffPl[rl's Gror*rfft fnffte Fhflfpprffies :1. tnfluence sf Technical Consultants

The rale sf teehnical csn$ultants in the formulation ofr:efsrm i:nteruentions Xed to the intrsduction of Eome NPMconcepts in the Fhilippines. As Greer {3.994} puts it, NPMreform$ have been globalized hy change agents, uuhich includelarffe internatianal management csnsultants, accountaficyfirrns and international ttnanclal institutions.

6


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f?. sevelapment in Information Technslosy

lT has provided necessary tools and structures tomeke workable managerlal refofms in the puhlic sectsrpossihle {Greer, 1994 as cited in Labr3}.Todarg, many ofthe fUpM inspired reforrn initiatives in the Fhilipplnes arehastened by the preseilce uf lT irufrastructures.f


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3. Mandatory structural adjustment prssrarns ofmLtttilateraI lending instituti'nns like the World Baftk,AnS and th* lnternati*nal Manetary Fund"

"Going first ta the IMF and then to the World Bankrneant accepting stabilizatian *nd structural adjustmentpackages with their accompanying canditronrlfries in order" toshtain credits and debt reseheduting from creditor banks andrnultllateral institutions. Policy-hased lending by multilateralinstitutions was used a5 an instrument to encourase crisisstates to ernbark 8n reforrHs that were prs-ffifrrkef snd pro-pnuote secfo r." {Lfrbri}


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G'; For ExamPle:The privatizatiun of the Metrapolitan Waterworks

and sewerage System tM\Jds$I, Bn NPhd inspired reforlrlffi*asure, u$as tid up to a *oan provided by nuultilateralagencies [ike the ADB. The Earne is true for theprlvatization of the National Power corporation{NAPOCOR}.,'*'


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Other ProjectsNaga City's E-Governance ProjectsThe most successful project in local government. Itgives indiscri minate access to information on citypolicis, programs and operatlons via the internet,Outsourcing of services Traditionally provided( by LTO (e.g. application for and renewa! of driversLicenses


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Mail$amayail ilVlutrt, Hindi MaffiIaYa Na FragraffiIA cnre principle of NpM ls custonler*srie,ntatioil, uuhichinvolues an increasing mphasis on Improving the qualityof services, settlng standards for.,quallty, and resp*ndingts custsffier's srientatisn" While tradltionel Fublicadministration regards citizens as sErvice receivers r,uhoare unilaterally glven lirnited choices by governmert,JVpr,bf regcrds cifrrens os cusfsrmers wfto Jtmue ntufffplecfior'ces, sinutrsr fs #Ie slferffisffue$ truffffsbtre ifi ffnyffigrkef.


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Tc Summarie*...w The central feature of NPM "is the attempt to lntr*duceor simulate, with*n those sections of the public servicethat are not privatized, the perfcrrnailce incentives andthe disciplines that exist in a rnarkef enuironrnent"

(hnoore, et al.o 1g$4}(


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Fur"thtfft,oFB, insights from developed ma rketeconom ies, urh [ch successfully refof med theirhu rea ucracy using N pM principles inspired FhilipplneBovernment officia ls ta initiate similar N ph/l refarrnefforts in the csuntry.


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f Alew Public Admi nistrationOr t'NPArr

(


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ADFITT{ ISTRATIONU I5T5 OIU T'HE. ruMEf FUBLICADil{IiluI.sTRATIftru,......,.THE PROCEEDINGS WERE PUBLISHED A5 A MOK IN397T, TITLED TfrWrtRD rt NEYIT P{JflLTCADMINISTR fTION: TtlE MINNOWERffitrPERStriTTVE

5


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TT{E TSffi.JS #F TT{E f{EW PUBtIf, AilMIHISTRATION WASETSilqCHNHM TO TffiMTfUE SUCH T&ADITIONALPHTH*ME!\IA AS HFFTf,IHFItr#f" ETTT VEFIESS,BUnGffI$'lGu AH B AmF{.{hlI$TH&TruE TECH hIIQUES.TI{E QLjHSTISNS IT RAISED SHALT kU',IrH VALUHS,ETHICS, TI{E DEVELOPMENT OF THH IhISIVIDUALMHMfiEH. IN THE ORGAhI{ZATION, THE RELATIQFN ffF THECLIEF{T WITH THE BUREAUCRACY, AND THE BROADpR*BLEMS *r Uffi.HAf{{SM, ffiffifu#LftGy, ANS sfiCIALCONFLIC]8.

rr rar rrr,, *!*xx J'.iat *ai*r


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ffi r*R rr&MpLE, GEfiRGE FRrDrRIcKsoil (t$gl,..{:l Yffiffiq # ryryffiSHFf EN*EH&Ffi r SfiCIAL EQUryV &S, qUffi fi lg$Fil [ry- I p*, r**m**llrrirn*fruE *ry?_$lffiL nEcffiI*tu rcffiKtrufr .H[ livRSTr TH&r *IT IS ur-rcumffiruT oN ryryu9llf,srml{ i* BE ABLE Tfr SEVELfrP Eil{D DEffiryryiRrerus AND MrA_sytrryEFurrY ry?. I?_-.uru$uilsT&rum rrffi mrxryffi ilr r ryffE*tfrf,rs ftil{


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SCH.ffLAH5 MUffihIG THAT PERT** EF4PHASIZE& THEf{EED TO EXPLORE ALTERNATIVES TO THE THADffIONALTOP-DOWN HIERJERCHICAL MODEL OF zuREAUCRATICORGANIZATION. INDICTING THE OLD MODEL FOR IT5*tsJEf,T{FTC&TI*hI AT{& SEPERSONAHTATT*hI SF*Rffitr{,IAATI,##qAL Mf,HBEHS ANn CALIIFIG FOR M*SEIsSUTLT] RffUhID OPHhIHE$SU TRUST' ANB H*T{HSTCOMMUNICAT{OhI5.


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M MAIIU. AfrREEMEIUTS OF THE [\[EW PUBLTCADIIJI}ruXSTRATIfiil{:

* PU$LII A$HIIItrISTF&ISRS AHD PUBLIC AGENCIffi ffiENOT AF*D CANruOT BE EITHER NEUTRAL OROBJEfrTIVE.2) TECHNOLOGY I5 OFTEN DEHUT\4ANIZING.,. t,,.,-..,-' : : I a.a::.:.,

3) tstlHEAt.-$cRATIC HE.ERARf,HY I5 #mEFI IFtrEffiETrIVEA5 AN ORGAFIIZATIOruAL STHATE T.4l tsuREeffi&,efrIEs TENS TfiWARD GfieL ilffipLACEF4En$rAruS: Sl]Rhft$ L.

''::ll : ': : 1

ei**-.{lit ,*.a*;


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sl CffiffiPERATI#l$o C#I$SENSUS, AlSil SET4SCRAfiI -_AilF,III\&E5TRA?gON ARE T4frRE LilKEI-Y TT'*AIS THE ffiffiPLEEXERTISE SF ASF4TTTS.TRATSVE ru?HORtrW T* RESLILT TN

IT5 #F FIJBLTC ADMEIUISTRATT*ryryUry BEBUTLT Sru P*5rffiHAV- ISHAL AI.*N Pfi5TF#5TTSVT5T LMXC'M 0 RE ffi E F,ir#cRArllr "Yg$.t ggTffi F":$t 1EH.ESP*ruSXUE Tfi C${A[\IG$*fi SSTEAI* Ef,ftryGF4lfrN ffiilpmilffic*L CxRCUMsTANCEs" gffienlx\*r 3S7t}


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THH ffiVEffi&.IffiIruG SFTftTT *F THH HHMf PUffiLIf,ADMINISTRATIOru WAS A MORAL TO!qEITHH *tr&,IIffi".f,#,A CAhI ffiH UIf;WED AS ECALL F*ft" [[\IffifiPENMEruCE FRftM BOTH roLm{ffil $C[HhIffi(ffiwAS NfiT, AFrER ALI_, ffiER CALLEB THE F{ntrpoLlTICs 0F BUREAUCRACY) Ar{D MAhTAGEMEFIT {srruCEMAf\I-AGEF'IEIUT ALUJAYS HAD BEEftJ EMPHATICALLY"ffiCHffiCAt frATHER THAht ruftftFIATM Iht ApPRGACH).

{ H. GEORGE F RESfrRIf,Kffi ff, rcffi*&8& d f,El,f,iFd/8["If ,40/tff#J$fiqr* ffifiry 1S fl] "


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THE NETfS FUBLXC ANMENTSTRATIfiN, h$EVER l-S/E$ UF T#ETs EMBTTT#T\*s #FRFdOL|-JTXGNStrHG THE DT5f,1FLT[\NE.F$EVERTHEE*EssN THE M#VEMEffT HAS E LESTI]SG gffiFAf,TTtrhI FUtsLXfi &DFI*Th*T5TH4T3#N Tffi,THAT THEY ruUSGE$FuitsLIfr AD F4IN IsrRATroNIqrE xftrg H"ECo tusIDERIr\$fi THEIRTRASTTX#I\#AL SruTELIECTUAL TTES IJ.I/ITH BfiTI'{ TLITTC&LSCIENCE Aft&U T,IAIrtrAGEMEffi, AND INTO COruTEMFLATENGTFIE PROSPECTS OF ACADEMTC AUTOftIOMY.HOWEI/ER, THEY LATER IIUSPIRE THE DEVELOPMEIUT OF ANEW APPRSACHES IIU PUtsUC ADTFIruTSTRATION SUCH A5THE ffiEkV PUBLIC SERVIIE AFnm THE roS"fM.sDERIU PUBUCADMIFIISTRATTOF&.

hvww.Siryfi4}$r.(xltlt 11


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THE I\fiEW PUtsLgC ADM[NI5TRA?Efiru ruEVER LIVES IJF TfiXYs &F,{BSTXOI\*5 fiFREVfrLUTTfrTqIffffifi THE STsfl[FtTF*EIUEVERTHELESS, THE M*VEMEIUT HAF A LffiTTF*fi tr,ffiFACT*F$ pusLEC &nMgF*ISTRArWr!$ Ntlfi THAT Th*EY tr$UffGEmPUBLIC ASF*TI\IISTRATE#[UITil'5 ENTO RECff IU5{trERING THESRTRADTTIOruAL NNTELLEflTUAL TIES WtrTH BOTH PSLTTECALsCIENCE AF*D I4AIUAGEMEffi, AND INTO COIUTEMPLATING

HfiWtsdER, THPf LATER TNSPIRE THE NEVELOFMENT OF AruEW APPR#AfiHE5 gru P#BLIC AilII{IIUTSTRATIOru sUfrH A5THE NEW PUBLTC SERVECE AftID THE POSTMODERN FUBLICANMINISTRATIOFI.


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\,rddical way 6oing business:in theublic sector.N'PM :ril$eh,infy - &Gt.aan in:stfument of initl'ata,nd ,f us,taining'social "change:ih',ord'er to b.ri n,down fiu.stration amongrevolutionarylange process

Entrepreneurial :over:nmena" ;. -'1omo e cdmpetition ,et, Servi6grprovidersimpowei citizens bVUSh,ingcontrdl out 6fre b,ur.e1u:racy, into)mmunity

.:.,leasure performanceF their agencies :IPUTS but onUTCOMES,

people4 ASPECTS.Change.Relevance,.Eqr[i:ty., Fai,rness & Justi.Values

' : t' '' lt '.No greater emphasis omorals and ethics amot.Calls for client loyalty

', a t ' - .:i.Ci ti z -en: .par,ti c i pat ib n'i nadministrationneighborhood controlbureaucracy and plurali


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models of public admin

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