Guy B. Peters: Fifty years of public administration
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Transcript of Guy B. Peters: Fifty years of public administration
Fifty Years of Public Administration
Theory and Practice
1
The Challenge
• Capture the Development of This Field
• What is its Present State?
• What is its Future?
• Public Administration More Difficult than Most Areas of Inquiry
2
Defining, ConfoundingCharacteristics
• 1. Theory and Practice
• 2. Dependent in Part Upon Transformations of The Public Sector More Generally
3. A Discipline, But Also Integrates Other Disciplines
4. Comparative as Well as National
3
Period of Major Change• Warfare State to Welfare State• National Development• The Development of Public Administration
Certainly Some Before But Major Development
Theoretical Developments Rationality
Bounded Rationality Institutionalism Networks, etc.• Management Developments
NPMBudgeting
4
Strategy for Presentation
• Focus on Series of Analytic Themes
• Dichotomies, a la Simon
• Often Cyclical Rather than Developmental
• Always Focus on Reform and Change
5
I. Management and Administration
• Basic Theme of Law vs. Management, Formalism vs. Management
• Back to Weber and Wilson
• Rather Different Visions of Public Administration, Although Discussed Together
6
Now Tend to Disparage Administration
• Formalism• Rigidity• Inefficiency
BUT
• In its time, crucial• Equality• Transparency• Efficiency of a Sort
7
Wilson as Early Managerialism
• Scientific Management
• Supremacy of Management
• Capacity to Make the Public Sector More Efficient
• Then successors such as Brownlow
8
Then the NPM• Actually a Lot of OPM, US ,Canada, Scandinavia
• Then the Movement to Management
• Various Drivers for Change
• Various Meanings
MarketInternal DeregulationPerformance
9
But Too Far?• Fragmentation
• Difficulties of Measurement
• Inequality
• Less-Developed Systems
• Primacy of Politics
10
And What Form of Management?
• Human Relations Management in 30s
• Now Participatory Versions
• Not only the NPM Style
11
Swing Back to Administration
• What’s Wrong with Bureaucracy?
• Return to More Formalism
• Managerialism Did Not Always Serve Clients Well
• Again, the Political Dimension
12
II. Impartiality and Responsiveness
• Another of the Old Questions
• Neutral Competence vs, Responsive Competence
• Wilsonian Separation
• Shafferian Bargain (Hood and Lodge)
13
Relationships of Politicians and Bureaucrats
• Crucial Question for Governance
• Styles of Inquiry
Structures Attitudes Bargains
14
Normative and EmpiricalArguments
• Normative
Professional Civil Service Serve the State, not a Government Neutrality and Skepticism “Speaking Truth to Power”
• Empirical
Better Decisions Organizational Memory Stability of Policy
15
Polticization as an Issue• Long Standing Issue
• Seems to Have Been Exacerbated Neo-Liberals Post-NPM Presidentialization
• Various Meanings
Overt Professional Redundant Anticipatory Dual Social
16
Democracy on the Output Sideof Government?
• Decline of Conventional Models
• Popular Apathy
• Interest in Local Institutions
• Bureaucracy as Locus of Participation
17
III. Simplicity and Complexity
• Structure Rather than Behavior
• Reorganization as One of the Oldest Strategies in Public Administration
• Salamon
Less Efficiency More Policy
18
Traditional Model• Simple Hierarchies
• For All Types of Functions (Area, etc.)
• Ministerial Department
• Internalizing Implementation
19
Agencies as an Option• Old Swedish Model
• “Next Steps” in the UK
• Now Widely Dispersed
• Basic Logic
Single Function Autonomy Different Governance Mechanism Quasi-Public
20
Mega-Departments as theOther Extreme
• Integrate Major Functions, e.g. Social Services
• Coordination and Coherence
• Benefits
• Costs
21
But What Goes With What?
• Multiple Logics
• For Example, Labor Market Policies
• To Some Extent Everything Goes with Everything
22
Is There a Perfect Structure?
• Constant Search
• All Formats Now in Use
• How to Match to Functions?
• How to Match Political Systems?
23
IV. Specialization and Coordination
• Another of the Classic Questions in Public Administration
• Need to Bring Expertise To Bear
• Need to Create Coherence
• How Do we Balance?
24
Have Tended to EmphasizeExpertise
• The Cabinet Department
• Specialized Advice Organizations
MinisterialPresidential, etc.
• Advisory Processes
25
But More Recently Emphasis on Coordination
• Political and Administrative Reasons
• After NPM
• “Joined Up Government”
• Priority Setting Style
General Post Crisis
26
Changing Levels ofCoordination
• Negative
• Positive
• Strategy
• All are Relevant
27
Movement Back and ForthLooking for the Optimal
• True for all Dimensions of Reorganization
• Bouckaert, Peters, Verhoest
• Political As well as Administrative
28
V. Autonomy and Integration
• State and Society Issue
• How Autonomous are Public Organizations From Their Clients and Stakeholders?
• Answer Varies Markedly
Across Time Across Countries
29
Statist Position
• State Power
• Autonomy
• Legalism
• Top-Down Perspective
30
Corporatist Alternative
• State Dependent Upon Society
• Importance of Stakeholders
• Alternative Form of Participation
• Democracy and Efficiency
31
Network Version
• “Governance Without Government”
• Autopoesis
• Openness to Multiple Actors
• But Still Linked to Public Sector
32
Autonomy from Political Control
• Some of the Same Question as Agencies
• Structural Differentiation
• Professionalism and Expertise
33
Use of Other Actors• Contracts
• Partnerships
• Market Action
• Etc
• Normative and Empirical Issues
34
VI. Rationality and Evolution• Two Significant Strands of theory
• Rational Choice/Social Choice
• Bounded Rationality
• Both Reactions to Conventional “Theory”
Scientific Management Human Relations POSDCORB
35
Rational Choice
• Downs, Niskanen, et seq.
• Principal/Agent ideas
• Moral Hazard, etc.
• Useful, but….
36
Bounded Rationality
• Simon
• Then Development
Cyert and March Cohen March And Olsen
Institutionalism Organizational Basis of Political Life
37
Incrementalism as AnotherVariant
• Synoptic Model of Rationality
• Incrementalism as an Alternative
Empirical Normative
Dominant in American Public Administration
38
VII. Authority and Democracy
• The Public Sector as Source of Authority
• But Need for Accountability
• Again, Shifting Over Time
• Generally in the Direction of Greater Accountability
39
Traditional Form of Accountability
• Hierarchical
• Internal to the State
• Focus on Errors
40
Now More Complex
• Hierarchical Continues Upward
• Supplemented by Outward
• Supplemented by Downward
• Civil Servants with Multiple Masters
41
Hood, Peters, et al
• Hierarchy
• Competition
• Mutualism
• Contrived Randomness
42
Responsibility and Responsiveness
• NPM and Responsibility
• Participative Style and Responsiveness
• Now Restatement of Accountability
43
Performance Accountability
• Part of NPM, but Legs of its Own
• Managerial, but Also About Accountability
• Depends Upon Public Activation
• Less on Mistakes, More on Average Levels of Performance
44
Conclusions
• Constant Search for Improvement
• And Often Reinventing the Wheel
• Why?
• Absence of Theory?
45
Can We Learn?
• Cross Time
• Cross System
• Triumph of Hope Over Experience
• The Future as More of the Same?
46