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Statecrafting:anewapproachtopublicadministrationALASDAIRROBERTSTRUMANSCHOOLOFPUBLICAFFAIRS

UNIVERSITYOFMISSOURI

FivefeaturesofnewapproachHigherlevelofanalysis◦ Thestateasthefoundationalconcept◦ Attentionto"largeforces":statesystem,markets,people,technologies

Longertimeframes◦ Historicalperspective◦ Anticipationoffutureevents

Dynamism◦ Awarenessofcontingency,change,andneedforadaptation

Realism◦ Awarenessofthreatstoauthority,fragilityofinstitutions◦ Needforvigilance,judgment

Normativecommitments◦ Preservingstatecapabilities◦ Promotinghumanrights

TheriseofPublicManagementAssociations:◦ PublicManagementResearchAssociation◦ InternationalResearchSocietyforPublicManagement◦ InternationalPublicManagementNetwork◦ AssociationforPublicPolicyAnalysisandManagement◦ AcademyofManagement,PublicandNonprofitDivision

Journals,suchas:◦ JournalofPublicAdministrationResearchandTheory◦ PublicManagementReview◦ InternationalPublicManagementJournal◦ JournalofPolicyAnalysisandManagement

Degrees,specializations,courses,textbooks,chairs

AimsofPublicManagement"[The]primarypurpose[ofthefieldofpublicmanagement]istodevelopaunderstandingofhowpublic,primarilygovernmental,organizationsmayaccomplishthemissionschargedtothem."JamesPerryandKennethKraemer,1983."Publicmanagementisaboutmakingsurethattheresourcesavailableareusedaseffectivelyaspossibletorealizestatepolicygoals."MarkBevir,2012."Whatispublicmanagement?...[A]napproachthatusesmanagerialtechniques...toincreasethevalueformoneyachievedbypublicservices."TonyBovaird andElkeLoeffler,2016.

"Publicmanagersareresponsiblefortranslatingthegoalsandobjectivesofpolicymakersintotangibleoperatingresults.Publicmanagementistheprocessofensuringthattheallocationanduseofresourcesavailabletogovernmentaredirectedtowardtheachievementoflawfulpublicpolicygoals."CarolynHillandLaurenceLynnJr.,2016.

ImportanceoftimeandplaceHistoricalcontingency:◦ Anenterprisethatemergedasaresponsetotheproblemsofacertainsetofcountriesataparticularmomentinhistory

◦ "aresponsetoasetofspecialsocialconditions" (Hood,1991)

Alreadyestablishedby1970s:stateauthority,basicstatecapacity

Problemsofadvancedwelfarestatesinthelatetwentiethcentury:◦ Mountingevidenceofimplementationfailure◦ Growingcostofentitlementsandservices◦ Concernaboutdeficitsanddebts:taxpayerrevolts◦ "[Thespreadingbeliefthatgovernmentshadbecome'overloaded'andthatWesternstateshadbecomeunaffordable[and]ineffective"(PollittandBouckaert,2011)

Implication:Ifconditionschange,ideasmayfall"outofsync"withrealities

Problem#1:Neglectofbigquestions"PAhaslostsightofthebigpicture."ChristopherPollitt,2016

"[S]uch 'bigquestions'asthepoliticaleconomyofadministrativereformanditsevolution overtimewereacentralfocusofthefieldhistorically.Thisisnolongerthecase."RobertDurantandDavidRosenbloom, 2016"[P]ublic administrationneedstoreturntothinkingaboutthe'bigpicture'ratherthanthefragmentsthatdominatemuchofthecontemporaryworkinthediscipline."GuyPetersandJon Pierre, 2016"Thereisaneedforpublicadministration...toaddressthebigissuesthatcontemporarypoliticalsystemshavetodealwith." PerLaegreid,2016"[B]ig questionsaboutstatecapacityandlegitimacygolargelyunaddressedbyleadingresearchersandjournalsinourfield."Brint Milward, 2016"[I]tisalsoimpossibletoignorethecomplaintsofpractitionersandtheoristsoutsidethefieldthatpublicmanagementismissingbigtrendsandthepotentialforbigimpactsonbigquestions."DonaldKettl,2016

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Problem#2:Presentismandmyopia"Thestudyofpublicadministrationpayslittleattentiontohistory....[S]ystematic traininginresearchandmethodsofadministrativehistoryissorelymissinginpublicadministrationhighereducation."JosRaadschelders,2010

"[T]hepasthasbeensqueezedoutofcontemporaryacademictreatmentsofpublicmanagement."ChristopherPollitt,2008

"[P]ublic administrationresearch[isnot]taking'time'anywherenearasseriouslyasisdonebyotherfieldssharingtopicalinterestswithpublicadministration."RobertDurantandDavidRosenbloom,2016

"Governanceresearchandteachingruntoomuchbehindthefacts.Itshouldalsobeaheadofrealities."Geert Bouckaert,2017

Problem#3:NeglectedpartsofgovernmentBouckaert andPollitt,PublicManagementReform,2011:◦ "thestandardtextinthefield"◦ Wordsnotintheindex:borders,crime,defense,military,nationaldefense,nationalsecurity,police,policing,terrorism,war

Whatisassumedtobeavailableinadvancedcountries:◦ Functioninglegislativebranch◦ Mechanismsforcollectingrevenue,makingandexecutingbudgets◦ Civilpeace◦ Mechanismsforenforcementoflawsandorders◦ Absenceofcorruption◦ Merit-basedpersonnelsystems

Problem#4:InattentiontofragilityPublicManagementasa"globalenterprise"?

Fragilestates:thoseinwhichfundamentalaspectsofstatehood,suchasauthorityandlegitimacy,arenotwellestablishedFragileStatesIndex:◦ 53of178statesarestable◦ 125of178statesarefragile◦ 66of178statesareon"highwarning"or"alert"lists◦ 9 of10mostpopulousstatesarefragile

Andinso-called"stable"states,"bigquestions"about:◦ Borderintegrity◦ Legitimateuseofforce◦ Dysfunctionalityofmajorinstitutions◦ Divisionbetweenracialandreligiousgroups,socialclasses,sections

Contrast:ClassicalviewofPA"[T]hefieldofadministration...needstoberelatedto [theoryabout]theroleofthestateinhumanaffairs. Theendsofadministrationaretheultimateobjectsofthestateitself."LeonardWhite,1948

"Theideaofthestateistheconscienceofadministration.Seeingeverydaynewthingswhichthestateoughttodo,thenextthingistoseeclearlyhowtodothem."WoodrowWilson,1887

"Administrativedevelopments...cannotbeunderstoodunlesstheyarerelated(1)totheirownorganicpastand(2)tothecompulsionsoftheenvironmentinwhichtheyexist."LutherGulick,1948

"Thestatemustalwaysberediscovered....Almostassoonasitsformisstabilized,itneedstoberemade."JohnDewey,1927

LeonardWhite,IntroductiontotheStudyofPublicAdministration,1948

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Whathappened?FragmentationInternationalrelationsoccupiesterrainofdiplomacy,defense

Statebuilding literatureoccupiesterrainofpublicadministrationinfragilestates

AmericanPoliticalDevelopment examinestheprocessofstatebuildingintheU.S.context

Allthesecommunities,andPublicManagement,exploreaspectsofpublicadministration,butwith:◦ Differentfunctionalemphases◦ Differentgeographicemphases◦ Differenttemporalframes◦ Differentviewsaboutpossibilityofinstitutionalchange

WhatanewapproachtoPAmustdoReintegration ofthefieldandarevival ofoldwaysofthinking

Improveourhistoricalunderstandingandself-awareness

Improveourcapacitytoaddressbigor"regime-level"questions

Developamorecompleteviewofgovernmentalresponsibilities

Overcomethedivisionbetweenfragileandstablestates

Improveourcapacitytoanticipatenewchallengesforgovernment

ElementsofanewapproachStatesmustaddresssixproblems:◦ Managingrelationswithotherstates◦ Maintainingexternalsecurity:threatsfromrivalstatesandnon-stateactors◦ Establishinginternalcontrolandlegitimacy◦ Promotinghumanrights◦ Financingstateactivities◦ Promotingeconomicgrowth

Statesdevelopstrategies forprioritizingandaddressingtheseproblems◦ "Liberalstatebuilding,"the"Chinamodel,"the"welfarestate"

PAisconcernedwithdevelopmentofinstitutionsneededtoexecutestrategies◦ Design,givenuncertainty,inconsistency,controversy◦ Consolidation:submission,normativecommitment,investment◦ Management:delegation,monitoring,discipline,coordination

Fourthchallenge:adaptationConditions arealwayschanging:◦ Externalrivalsandenemies◦ People:characteristics,distribution,andmovement◦ Markets◦ Technologies◦ Disease◦ Nature

Andchangesinideas:◦ aboutprioritiesandtechniquesofaddressingproblems

Thatcreatethechallengeofadaptation◦ Needforcapacitytoanticipateandrecognizechangingcircumstances◦ Needtoavoid"over-commitment"◦ Inventionofnewstrategies,newinstitutions◦ Deconsolidation:Overcoming"vestedinterests"

FivefeaturesofnewapproachHigherlevelofanalysis◦ Thestateasthefoundationalconcept◦ Attentionto"largeforces":statesystem,markets,people,technologies

Longertimeframes◦ Historicalperspective◦ Anticipationoffutureevents

Dynamism◦ Awarenessofcontingency,change,andneedforadaptation

Realism◦ Awarenessofthreatstoauthority,fragilityofinstitutions◦ Needforvigilance,judgment

Normativecommitments◦ Preservingstatecapabilities◦ Promotinghumanrights

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WhyitmatterstodayChangesinconditions:◦ Changedexternalthreats◦ Socialandpoliticaleffectsofeconomicglobalization◦ Demographicshifts◦ Technologicaladvances

Andchangedideas:◦ Aboutthebenefitsof"openborders"◦ Aboutthecapacitiesofgovernment

Leadstodissatisfactionwitholdstrategy◦ Concernforexternalsecurity◦ Dissatisfactionwitheconomicperformance◦ Declininglegitimacyandanmore"massincidents"

Needfornewstrategy– andrenovatedinstitutions