Developments in public management theory
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Developments in Public Management Theory
Public Management Theory EvolutionAdrienne A WallaceFebruary 26, 2013
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Taylor
1911 Principles of Scientific Management◦Processes and outcomes
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Gulick
1937 major functions of managementPOSDCORB
◦Planning◦Organizing◦Staffing◦Directing◦Coordinating◦Reporting◦Budgeting
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Barnard
1938 Acceptance Theory of Authority◦Does management take authority?◦Is it earned?
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Hawthorne Effect
Group of studies in the late 1920/30’sWorker behavior affected by
communication principlesResearchers hypothesized:
◦that choosing one's own coworkers◦working as a group◦being treated as ◦having a sympathetic supervisor ◦equal to productivity increase
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50’s, 60’s Middle-Range Theories
Theory X (managerial oversight) vs. Theory Y (integrated individual and org goals)
Group/organizational TheoryRole TheoryCommunication Theory
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Theory X & Theory Y
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Traditional vs. New Management
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Theory X & Theory Y Simplified
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Group Theory
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Organizational Theory
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Role Theory
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Communication Theory
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Communication Theory
Five different types of communication◦Interpersonal ◦Dyadic◦Small Group◦Public◦Mass
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Laswell, 1948
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Shannon-Weaver, 1948-49
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Interactive Model, 1948-49
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Osgood Schramm, 1954
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Activity
1) Draw your ideal model of communication as a manager of public administration.
2) OR, describe it in 2-3 sentences.3) Emphasize preferred methods of
command and feedback.4) Explain and share.
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70’s, 80’s, 90’s
Doctrines of AdministrationPublic Management TheoryEntrepreneurial Public ManagementNew Public Management (NPM)
◦New Managerialism
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Hood & Jackson, 1991
1) Ubiquitous (found everywhere)2) Based on “soft data” and “soft logic”3) Constantly shifting “received view” or
“received wisdom”4) Often contradictory5) Unstable, changes with society6) Rotate (aka fashion)
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New Public Management (NPM)
Hood & Jackson’s doctrines become NPMResult in government that is:
◦Better (for whom? Debated)◦Cleaner◦More efficient◦More professional◦Larger, more expensive
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Major Ideas of NPM
Structural devolution and decentralizationVertical coordination and autonomy within single
agencyManagerialism and management techniquesContractualism, privatization, and
entrepreneurshipMarket-driven techniques, competition, and
citizens as customersAgainst the Weberian theoryDeregulation and market transactionsPerformance management and output
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Consequences of NPM
Fragmentation of roles and role ambiguity as a result of structural devolution
Expansion of single-purpose organizations and vertical specialization
Neglecting cooperation across agenciesExcessive managerial autonomyDiscontinuities and nonlinearitiesUndermining political control, creating
mistrust, producing role ambiguity
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Leadership
Where politic meets administration.Involves visionary skill – look beyond needs to
create valueStudy of what leaders do rather than
management theories.“The manager does things right; the leader
does the right thing” (Bennis, 2003)◦Too much management not enough leadership◦Uses group theory and communication theory
Should do adaptive work Tough under authoritative rule
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Contract
“government by proxy”“third party government”“the hollow state”“indirect government”1/6th of total federal spending on contract
work
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Privatization Successful
1) Project can be clearly and precisely described for purposes of negotiation and compliance.
2) Desired outcomes can be measured and identified.
3) Penalties are imposed for noncompliance4) Contractors maybe discontinued or
changed
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Accountability & Transparency
Information and communication technologies ◦Reduce corruption◦Increase competition◦Collaborative in nature◦Facilitate improved communication◦Increase participation◦Promote transparency via E-government/Social
Media Contractor Government
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Risks and Returns
NPM grounded in observationsDifficult to replicateNot thought of as ‘scientific’Methods are transferrable *NPM more efficiency (output) than
effective (outcome)Consider differences between day-to-day
problems and long-term societal problemsParadigm is in trouble
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Post-New Public Management
JUG: joined up government (2003) WG: whole of government (1990’s) More holistic strategy Using insights from the other social sciences, rather than just
economics Designed to “get a grip” on wicked problems Presented as opposite of 'departmentalism', tunnel vision, and
'vertical silos‘ Entails:
◦ Strong political control◦ Reaching out to society via user forums and participation◦ Enabling individual and organized private actors in civil society ◦ Representative government◦ Public-private partnerships with NPO/NGO inclusion◦ Networks◦ Environmentally conscious
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Major Ideas Post-NPM
Reducing fragmentation through structural integration Asserting recentralization and re-regulation Whole-of-government or joined-up government initiatives Eliminating role ambiguity and creating clear role
relationships Private-public partnerships Increased centralization, capacity building, and
coordination Strengthening central political and administrative
capacity Paying attention to environmental, historical, and cultural
elements
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Accountability, Performance, & Trust Under NPM & Post-NPM
Both assume public employees are accountable for:◦implementing management goals◦change initiatives.
Employees are expected to:◦comply with new rules, procedures, and
incentives◦be motivated by these external variables
[“because I said so”]
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Now what?
What if this isn’t the case?Where do we go from here in public
management theory?
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References
Bertot, J.C., Jaeger, P. T., & Grimes, J. M. (2012). Promoting transparency and accountability through ICTs, social media, and collaborative e-government. Transforming Government: People, Process and Policy, 6(1), 78-91. doi: http://dx.doi.org/10.1108/17506161211214831
Christensen, Tom, and Per Lægreid. "Democracy and Administrative Policy: Contrasting Elements of New Public Management (NPM) and Post-NPM." European Political Science Review : EPSR 3.1 (2011): 125-46. ProQuest Social Sciences Premium Collection. Web. 26 Feb. 2013.
Dunleavy, P., Margetts, H., Bastow, S., & Tinkler, J. (2006). New public management is dead -- long live digital-era governance. Journal of Public Administration Research and Theory, 16(3), 467-494. doi: http://dx.doi.org/10.1093/jopart/mui057
Frederickson, H.G., Smith, K.B., Larimer, C.W., & Licari, M.J. (2012). The public administration theory primer. Boulder, CO: Westview Press. Fu, K. (2012). The interaction of politics and management in public leadership: Measuring public political skill and assessing its effects. (The
Florida State University). ProQuest Dissertations and Theses, 132. Retrieved from http://search.proquest.com/docview/1095719509?accountid=15099. (1095719509).
Girth, A. M. (2010). Accountability and discretion in the age of contracting: When and why do public managers implement sanctions for unsatisfactory contract performance? (The American University). ProQuest Dissertations and Theses, 223. Retrieved from http://search.proquest.com/docview/762408559?accountid=15099. (762408559).
Gudelis, D., & Guogis, A. (2011). Integrating public and business management: A model of interaction between public and private sectors. International Review on Public and Non - Profit Marketing, 8(1), 1-9. doi: http://dx.doi.org/10.1007/s12208-010-0063-4.
Jong, S. Jun. "The Limits of Post-New Public Management and Beyond." Public administration review 69.1 (2009): 161-5.ProQuest Business Collection; ProQuest Psychology Journals; ProQuest Research Library; ProQuest Social Sciences Premium Collection. Web. 26 Feb. 2013.
Kelley, T. M., & Johnston, E. (2012). Discovering the appropriate role of serious games in the design of open governance platforms. Public Administration Quarterly, 36(4), 504-554. Retrieved from http://search.proquest.com/docview/1288363981?accountid=15099.
Luke, B., Kearins, K., & Martie-Louise Verreynne. (2011). The risks and returns of new public management: Political business. The International Journal of Public Sector Management, 24(4), 325-355. doi: http://dx.doi.org/10.1108/09513551111133489.
Levitt, Steven, D. and List, John, A. (2011) "Was there really a Hawthorne Effect at the Hawthorne Plant? an Analysis of the Original Illumination Experiments." American Economic Journal Applied Economics 3.1 : 224-38. ProQuest Business Collection.Web.
Masumi R. Izawa, Michael D. French, and Alan Hedge (2011). Shining New Light on the Hawthorne Illumination Experiments Human Factors: The Journal of the Human Factors and Ergonomics Society October 2011 53: 528-547,doi:10.1177/0018720811417968
Westbrook, M. A. (2012). Building an architecture for leadership development. Public Manager, 41(3), 60-63. Retrieved from http://search.proquest.com/docview/1047052590?accountid=15099.