Developments in Public Management Theory

Public Management Theory EvolutionAdrienne A WallaceFebruary 26, 2013

Taylor

1911 Principles of Scientific Management◦Processes and outcomes

Gulick

1937 major functions of managementPOSDCORB

◦Planning◦Organizing◦Staffing◦Directing◦Coordinating◦Reporting◦Budgeting

Barnard

1938 Acceptance Theory of Authority◦Does management take authority?◦Is it earned?

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

50’s, 60’s Middle-Range Theories

Theory X (managerial oversight) vs. Theory Y (integrated individual and org goals)

Group/organizational TheoryRole TheoryCommunication Theory

Theory X & Theory Y

Traditional vs. New Management

Theory X & Theory Y Simplified

Group Theory

Organizational Theory

Role Theory

Communication Theory

Communication Theory

Five different types of communication◦Interpersonal ◦Dyadic◦Small Group◦Public◦Mass

Laswell, 1948

Shannon-Weaver, 1948-49

Interactive Model, 1948-49

Osgood Schramm, 1954

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.

70’s, 80’s, 90’s

Doctrines of AdministrationPublic Management TheoryEntrepreneurial Public ManagementNew Public Management (NPM)

◦New Managerialism

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)

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

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

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

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

Contract

“government by proxy”“third party government”“the hollow state”“indirect government”1/6th of total federal spending on contract

work

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

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

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

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

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

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”]

Now what?

What if this isn’t the case?Where do we go from here in public

management theory?

References

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