06/03/2013

A PARADIGM SHIFT IN DEVELOPMENT ADMINISTRATION?

Development Administration Module 2

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Dr Duku Osei, Senior Fellow & Visiting Scholar

OUTLINE
06/03/2013

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

EXAMINE THE CLAIM THAT THERE HAS BEEN A SHIFT IN PARADIGM LOOK AT AUTHORS FOR AND AGAINST
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Authors for Milton Esman 1991 Management dimensions of Development David Osborne and Ted Gaebler (1991) Reinventing government; Christopher Hood (1991) Public Administration for all seasons (Journal article Public Administration) Ewan Ferlie et al. (1996) The New Public Management in Action Christopher Pollitt and Bourkeart (2000) Christopher Pollitt 2003 The Essential Public Manager Richard Batley and George Larbi (2004) The Changing Role of Government

AUTHORS AGAINST
06/03/2013

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 the scientific 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 from the classical method and it is merely neo-Weberian

STATE PROVISION AND THE NEW PUBLIC MANAGEMENT (NPM)

06/03/2013

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.

FEATURES OF NPM
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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)

WHAT HAS CHANGED IN TERMS OF THE MANAGEMENT IMPLEMENTS/TOOLS USED

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Rolling back the state Creation of quasi-markets Retention of the importance of public administration through rule of law (Legality) and Regulation of private business in the production of public services Regulation of the Stock Market Consideration of principal-agent problems associated with regulation E-Government Measurement and accountability and competency issues Key jobs in public service require substantial experience and training as the work of public servants has become more technical and service-oriented.

GOVERNING WITHOUT BOUNDARIES

06/03/2013

Government is currently organized based on a presumption that the world is relatively stable and predictable, and that governments work can be rooted in large-scale, repeatable routines. This hierarchical bureaucratic model was adopted in the mid-20th century from the corporate world. However, increasingly this does not reflect todays realities. The corporate world has been struggling with how to best organize to deliver services that are increasingly customized and unpredictable. This struggle is reflected in the public sector as well. The challenge on the frontlines of service delivery is to be able to combine knowledge and skills flexibly around changing tasks. Hierarchy and marketbased mechanisms struggle with this. - [IBM Centre for the Business of Government (2008) Ten challenges facing public managers].

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HAS THERE BEEN UNIFORMITY IN TERMS OF APPROACH AND RESULTS THE ISSUE OF CONVERGENCE
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Minogue 1998, 2001 Can 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 different jurisdictions adopting similar or even identical organizational forms and procedures. (Pollitt 2001)

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CONVERGENCE
06/03/2013

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 welfare and other public services.

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POLICY CONVERGENCE
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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 STAGES OF CONVERGENCE (POLLITT, 2001)

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Discursive Convergence: more and more people are talking and writing about the same concepts . The conceptual agenda is converging. Decisional Convergence: the authorities publicly decide to 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., performance related pay arrangements are applied to a growing percentage of the public sector labour force. Results Convergence: this is when reforms produce their intended (and unintended effects) so that outputs and outcomes of public sector activity begin to converge. E.g., the unit cost of issuing passports may fall in every country that re-engineers the issuing process in a certain way.

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EXPLAINING CONVERGENCE: THEORETICAL PERSPECTIVES

06/03/2013

Contemporary organization theory provides some strong suggestions as to why convergence at least of a sort might prove to be popular. Theorists in institutional economics (both of the principal agent and the property rights variety) tend to explain organizational forms in terms of utility maximization. The Osborne and Gaebler arguments (functional theory): convergence on a new way of organizing public tasks is happening because the old way (traditional bureaucracy) does not work under contemporary conditions thus governments all over the world are migrating towards a new way of running things (entrepreneurial government) which does 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 PROVISION AND PUBLIC MANAGEMENT REFORM

06/03/2013

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 of public management reform.

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PRIVATIZATION DEFINED
06/03/2013

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 to prevent other competitors gaining access to key markets (CS, 2002)

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OBJECTIVES OF PRIVATIZATION
STRATEGIES.
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To

increase efficiency and improve quality and productivity through increased competition; To reduce the size and influence of the public sector in general, and the extent of government involvement in industry in particular; To promote wider public participation and control through 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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WHAT HAS BEEN THE GHANAIAN EXPERIENCE IN THE

CHANGING ROLE OF THE STATE IN PUBLIC MANAGEMENT REFORM POLICY
06/03/2013

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 Jamaica on 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 the public interest), Administration of Discipline, Training Shared Corporate Services

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06/03/2013

New Performance Management & Appraisal System (PMAS)

Increasing Challenges of HR Sections:

Increasing needs of staff for personal assistance e.g counselling in variety of areas
Inadequate support from line managers & their understanding/ clarity of their new roles Inadequate HR communication strategy Growing expectations from internal & external customers in terms of speed & quality of service delivery Low organization morale: Heads of Sections / Supervisors/ staff feel that organizational needs & staff developmental needs not being adequately addressed
06/03/2013

Inadequate information technology support

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HRM&D(Model) Functional Profile

October 12, 2005

06/03/2013

Human Resource Mgt. & Development

FUNCTIONS: . Corporate/Strategic Planning . Commitee Secretariat . Policies Programmes . Communication Strategy

Committees

Human Resource Management FUNCTIONS: . Manpower Planning . Policy/Guidelines

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 Development FUNCTIONS: . Policy/Guidelines . Training Needs Analysis . Training Programme . Development Programme (succession planning) . Impact Assessment . Counseling Orientation (general) .

Staffing FUNCTIONS: . Recruitment . Selection Appointment . Promotions . Transfer . Orientation (initial) . Separation . Assignments

Employee Relations 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 Information Management FUNCTIONS: . Records . Information

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HRDM AS STRATEGIC PARTNER:

BUILDING CAPACITY (ADAPTED FROM PUBLIC SECTOR GENERIC ASPIRATION MODEL: RFA INTERNATIONAL
06/03/2013

Leadership focus on environmental scanning/ future and outcomes, not just present state. Knowledge management/ working through challenges promotes inter-ministerial teams/joined up government/Public & Private Partnerships/networking Strategic relationships achieve effective & efficient results when measured against time and cost shared ownership & accountability rather than buyin then buy-out

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OUTCOMES OF NPM
06/03/2013

It will be a smaller public sector, intensively focused on efficiency and continuous improvement. It will consist of small, core ministries (responsible for strategy) and a range of specialized, semiautonomous agencies (responsible for operations). It will work within clear performance frameworks that specify budgets and expected results.

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