lecture 2 (a paradigm shift )

7/29/2019 Lecture 2 (a Paradigm Shift )

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A PARADIGMSHIFTIN DEVELOPMENT

ADMINISTRATION?

Development Administration

Module 2

Dr Duku Osei, Senior Fellow & Visiting Scholar

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OUTLINE

Examine the claim that there has been a shift in

paradigm look at authors for and against

What has changed in terms of the management

implements/tools used

Has there been uniformity in terms of approach and

results the Issue of convergence

What has been the Ghanaian experience in the

changing role of the state in public management

reform policy

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EXAMINETHECLAIMTHATTHEREHASBEENASHIFTIN

PARADIGMLOOKATAUTHORSFORANDAGAINST

Authors for

- Milton Esman 1991 Management dimensions ofDevelopment

- David Osborne and Ted Gaebler (1991) -Reinventing government;

- Christopher Hood (1991) Public Administrationfor all seasons (Journal article PublicAdministration)

- Ewan Ferlie et al. (1996) The New PublicManagement in Action

- Christopher Pollitt and Bourkeart (2000)- Christopher Pollitt 2003 The Essential Public

Manager

- Richard Batley and George Larbi (2004) TheChanging Role of Government

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AUTHORSAGAINST

Allan Rosenblaum

Mick Moore (2000) Competition within and between

organisations

Adrian Leftwich Did NPM use the classical methods of improving

Bureaucratic Performance, i.e.,

1. Enhancing managerial skills by education and training

in institutions of donor country and strengthening

training institutions and programmes in LDCs

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2. Improving the technologies available to managers,

thereby enabling them to use resources more

efficiently and make their performance effective.

- Esman notes that this transfer of technology

approach includes financial methods such as

budgeting, accounting, and expenditure control;

improving the speed of information flows,

particularly through computers and information

systems; more rational methods of scheduling,monitoring, and evaluating programme operations

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Rationalising organisation and procedures and

adjusting structures and methods to enhance

management control, save resources, speed the

delivery of services applying to government

operations the prescriptions and experiences of thescientific management movement and its

technocratic successors in private industry.

The general argument here is that if these methods

were used, then NPM does not really depart fromthe classical method and it is merely neo-Weberian

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STATE PROVISIONANDTHE NEW PUBLIC

MANAGEMENT (NPM)

Critiques of the old public administration OPA which

emerged in the 1980s produced a reform model described as

the new public management.

The reform model is driven by the assumptions that large state

bureaucracies are inherently defective and wasteful and that

the market is better equipped than the state to provide goods

and services. (Minogue, 2001)

The NPM view of modern government is that it should be

mission-driven, decentralized and entrepreneurial.

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FEATURESOF NPM

A shift in focus of management systems from inputs

and processes to outputs and outcomes (Pollitt &

Beckaert, 2000)

A shift towards more measurement (Pollitt, 2000)

A shift towards specialized management structures

(Hughes, 1998)

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WHATHASCHANGEDINTERMSOFTHE

MANAGEMENTIMPLEMENTS/TOOLSUSED

Rolling back the state

Creation of quasi-markets

Retention of the importance of public administration

through rule of law (Legality) and Regulation of privatebusiness in the production of public services

Regulation of the Stock Market

Consideration of principal-agent problems associatedwith regulation

E-Government Measurement and accountability and competency

issuesKey jobs in public service require substantialexperience and training as the work of public servantshas become more technical and service-oriented.

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GOVERNING WITHOUT BOUNDARIES

Government is currently organized based on apresumption that the world is relatively stable andpredictable, and that governments work can be rootedin large-scale, repeatable routines. This hierarchicalbureaucratic model was adopted in the mid-20th century

from the corporate world. However, increasingly thisdoes not reflect todays realities. The corporate worldhas been struggling with how to best organize to deliverservices that are increasingly customized andunpredictable. This struggle is reflected in the publicsector as well. The challenge on the frontlines of service

delivery is to be able to combine knowledge and skillsflexibly around changing tasks. Hierarchy and market-based mechanisms struggle with this.

- [IBM Centre for the Business of Government (2008) Tenchallenges facing public managers].

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HASTHEREBEENUNIFORMITYINTERMSOFAPPROACHANDRESULTS

THE ISSUEOFCONVERGENCE

Minogue 1998, 2001Can flawed models be

exported

Richard Common (1998) Convergence

Christopher Pollitt (2001) Convergence Charles Polidano (2001) Administrative reform in

core Civil Services

What is Convergence? - In administrative terms

this could be thought of as many differentjurisdictions adopting similar or even identical

organizational forms and procedures. (Pollitt 2001)

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CONVERGENCE

Common asked the question whether the issue of

convergence especially in policy is not merely the

globalization of public management as countries of

the world align on a commonality of purpose.

Manning (1996) describes the unprecedented

waves of reforms as a response by political leaders

primarily from developed industrial economies to try

and keep down levels of public taxation and

expenditure while maintaining high levels of welfareand other public services.

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POLICY CONVERGENCE

Focuses mainly on the stage at which a policy is

bought or sold

Is preceded by other important steps namely

formulation of ideas, debate, adoption and resource

commitment.

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THE FOUR STAGESOF CONVERGENCE

(POLLITT, 2001)

Discursive Convergence: more and more people aretalking and writing about the same concepts . Theconceptual agenda is converging.

Decisional Convergence: the authorities publicly decideto adopt a particular organizational form or technique.For eg. the UK adopted a national citizens charter in

1991. Practice Convergence: public sector organizations

begin to work in more similar ways. E.g., performancerelated pay arrangements are applied to a growingpercentage of the public sector labour force.

Results Convergence: this is when reforms produce

their intended (and unintended effects) so that outputsand outcomes of public sector activity begin toconverge. E.g., the unit cost of issuing passports mayfall in every country that re-engineers the issuingprocess in a certain way.

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EXPLAINING CONVERGENCE: THEORETICAL

PERSPECTIVES

Contemporary organization theory provides somestrong suggestions as to why convergence atleast of a sort might prove to be popular.

Theorists in institutional economics (both of theprincipal agent and the property rights variety) tendto explain organizational forms in terms of utilitymaximization.

The Osborne and Gaebler arguments (functionaltheory): convergence on a new way of organizingpublic tasks is happening because the old way

(traditional bureaucracy) does not work undercontemporary conditions thus governments all overthe world are migrating towards a new way ofrunning things (entrepreneurial government) whichdoes work.

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All around the world governments are recognizing

the opportunity to improve the quality and

effectiveness of the public sector. Privatization,

market testing and private finance are being used in

almost every developed country. (Dorrell 1993)

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STATE PROVISIONAND PUBLIC MANAGEMENT

REFORM

Many academics have questioned the thesis (most

prominently associated with Osborne and Gaeblers

Re-inventing government) that there is an

inevitable and global convergence towards a

particular, new style of public management.

There now exists a considerable academic

literature debunking the idea that there is an

international convergence towards the New Public

Management/Reinventing government styles ofpublic management reform.

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PRIVATIZATIONDEFINED

In the strictest sense, privatization refers to the

full sale of assets from a public (State) entity to

a private entity.

Privatization is accompanied by re-regulation,

ensuring that monopoly or powerful enterprises

do not use their newly unleashed market

position to pursue unfair pricing policies or toprevent other competitors gaining access to

key markets (CS, 2002)

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OBJECTIVESOFPRIVATIZATIONSTRATEGIES.

To increase efficiency and improve quality andproductivity through increased competition;

To reduce the size and influence of the public sector

in general, and the extent of government involvementin industry in particular;

To promote wider public participation and controlthrough the diffusion of share ownership or the

creation of management or employee buy-outs,To signal strong support for the private sector as an

engine for development

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WHATHASBEENTHE GHANAIANEXPERIENCEINTHE

CHANGINGROLEOFTHESTATEINPUBLICMANAGEMENT

REFORMPOLICY

PARDIC Public Administration Reform and

Decentralisation Implementation Committee (See

Ayees chapter in Ghana at 50. Edited by Joseph

Ayee, 2007). Decentralisation outcomes (Batley

and Larbi 2004

CSPIP

PUFMARP

Arms length institutions from ministries and

legislature - PURC

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Developments: in Jamaicaon phased basis over period of time

Citizens Charter/emphasis on Customer Service

Executive Agencies/ (EA) Performance Based Institutions(PBI)

Delegation of HR Functions:

Appointments,Separation(with exceptions: early retirement & in thepublic interest),

Administration of Discipline,Training

Shared Corporate Services

New Performance Management & Appraisal System (PMAS)


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Increasing Challenges of HR Sections:

Increasing needs of staff for personal assistance e.gcounselling in variety of areas

Inadequate support from line managers & theirunderstanding/ clarity of their new roles

Inadequate HR communication strategy

Growing expectations from internal & externalcustomers in terms of speed & quality of servicedelivery

Low organization morale: Heads of Sections /Supervisors/ staff feel that organizational needs & staffdevelopmental needs not being adequately addressed

Inadequate information technology support


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October 12, 2005

HRM&D(Model)

Functional Profile

Human Resource

Mgt. & Development

Committees

FUNCTIONS:

. Corporate/Strategic Planning

. Commitee Secretariat

. Policies Programmes

. Communication Strategy

Organizational

Development

FUNCTIONS:

. Structure & Staffing

. Manuals e.g. Code of Conduct

.. Job Descriptions,

. Work plans

. Systems & Procedures

. PMAS Instruments/System

. Communications, Memoranda,

circulars, .e-mail

. Knowledge Management strategy

Research (Analysis)

Human Resource

Management

Employee Relations

Human Resource

Information

Management

Staffing

FUNCTIONS:

. Manpower Planning

. Policy/Guidelines

FUNCTIONS:. Recruitment

. Selection

Appointment

. Promotions

. Transfer

. Orientation (initial)

. Separation

. Assignments

FUNCTIONS:. Pensions

. Leave

. Health Insurance

. Loan Application

. Long Service/

. Performance Awards

. Compensation

. Allowances

. Grants

. Staff relations

. Staff well being

. Industrial Relations

. Discipline

. Grievance

. Safety/Health

Human Resource

Development

FUNCTIONS:

. Policy/Guidelines

. Training Needs Analysis

. Training Programme

. Development Programme

(succession planning)

. Impact Assessment

. Counseling

Orientation (general)

.

FUNCTIONS:. Records

. Information


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HRDM AS STRATEGIC PARTNER:BUILDING CAPACITY

(ADAPTEDFROMPUBLICSECTORGENERICASPIRATIONMODEL:

RFA INTERNATIONAL

Leadership focus on environmental scanning/ futureand outcomes, not just present state.

Knowledge management/ working through

challenges promotes inter-ministerial teams/joinedup government/Public & PrivatePartnerships/networking

Strategic relationships achieve effective & efficientresults when measured against time and cost

shared ownership & accountability rather than buy-in then buy-out

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OUTCOMESOF NPM

It will be a smaller public sector, intensively focusedon efficiency and continuous improvement.

It will consist of small, core ministries (responsiblefor strategy) and a range of specialized, semi-

autonomous agencies (responsible for operations). It will work within clear performance frameworks

that specify budgets and expected results.

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lecture 2 (a paradigm shift )

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