The new public personnel and the new public service

The New Public Administration sought a public service whose legitimacy would be based, in part, on its promotion of “social equity.” Since 1968, several personnel changes congruent with the New Public Administration have occurred: traditional managerial authority over public employees has been reduced through collective bargaining and changes in constitutional doctrines; the public service has become more socially representative; establishing a representative bureaucracy has become an important policy goal; more emphasis is now placed on employee participation in the work place; and legal changes regarding public administrators’ liability have promoted an “inner check” on their behavior. At the same time, however, broad systemic changes involving decentralization and the relationship between political officials and career civil servants have tended to undercut the impact of those changes in personnel. The theories of Minnowbrook I, therefore, have proven insufficient as a foundation for a new public service. Grounding the public service's legitimacy in the U.S. Constitution is a more promising alternative and is strongly recommended.

The New Public Administration, like other historical calls for drastic administrative change in the United States, sought to develop a new basis for public administrative legitimacy. Earlier successful movements grounded the legitimacy of the public service in high social standing and leadership, representativeness and close relationship to political parties, or in putative political neutrality and scientific managerial and technical expertise. To these bases, the New Public Administration sought to add “social equity.” As George Frederickson explained, “Administrators are not neutral. They should be committed to both good management and social equity as values, things to be achieved, or rationales. “⁽¹⁾ Social equity was defined as “includ[ing] activities designed to enhance the political power and economic well being of … [disadvantaged] minorities.” It was necessary because “the procedures of representative democracy presently operate in a way that either fails or only very gradually attempts to reverse systematic discrimination against” these groups.⁽²⁾

Like the Federalists, the Jacksonians, and the civil service reformers and progressives before it, the New Public Administration focused upon administrative reform as a means of redistributing political power.⁽³⁾ Also, like these earlier movements, the New Public Administration included a model of a new type of public servant. This article sets forth that new model and considers the extent to which the major changes that have actually taken place in public personnel administration since 1968 are congruent with it. We find that while contemporary public personnel reflects many of the values and concerns advanced by the New Public Administration, substantial changes in the political environment of public administration have frustrated the development of a new public service that would encompass the larger goals and ideals expressed at Minnowbrook I. Building on the trends of the past two decades, this article also speculates about the future. Our conclusion is that ultimately the public service's legitimacy must be grounded in the Constitution. Although its focus is on macro-level political and administrative developments, the broad changes it discusses provide the framework from which many contemporary personnel work-life issues, such as pay equity and flexitime, have emerged.     

Symposium: public policy and organization termination

This symposium has three objectives: first, to define the terminology of policy and organization termination and provide a review of literature that will identify current theories and frameworks of termination; second, to publish new studies that test and evaluate the usefulness of these theories and frameworks; and third, to encourage further testing and study of theories and frameworks that have proven so far to be useful in explaining termination.     

Implementing microcomputer systems in the public organization

Microcomputers are rapidly becoming a pervasive technology in public organizations. Unfortunately, many public managers are not prepared to deal successfully with the management and policy problems that accompany the introduction of microcomputer systems.

This essay explores several important issues relating to the effective management of microcomputers in the public or ganization. The, emphasis of the discussion through out the essay is on increaslng management a ware ness of the issues, policies, and problems surrounding microcomputer use. Specifically the essay covers the use of micros in the organizational environment, planning for systems implementation, providing training and support, dealing with human factors, and effectiveuse of microcomputing technology as a managerial tool.     

Understanding employee commitment in the public organization: a study of the juvenile detention center

This study examined the relationship between organizational commitment and several personal, role, professional, job and organizational factors among juvenile detention workers. The study revealed that (1) commitment is significantly correlated to role ambiguity, supervisor trust, rile matment-oriented attitude toward the detainee, job satisfaction, job involvement, and organizational trust, and (2) organizational trust, the treatment attitude. role ambiguity, and job involvement are major predictors of employee commitment to the detention center. Implications concerning the results of this study are discussed.     

The road to minnowbrook: development of the new public administration in the United States

The decade of the 1960s was a time of political upheaval and turbulence; American society witnessed many changes. The decade was one of hope and at the same time one of despair. It was one in which there were great expectations of the national government, and one that would lead some to conclude that the national giovernment was incapable of solving the complex problems of modern society. Public administrators, like other members of the population, were deeply affected by the events of the decade. Some of them began to question their discpline and profession, and a movement developed within the discipline in search of a new public administration; one sensitive to and capable of solving societal problems that had gone unresolved in the decade of the sixties.

The present study presents an historical explication of the new public administration. The new public administration movement is viewed as a product of numerous conferences, works, and events, four of which appear as major landmarks: 1) the Honey Report on Higher Education for Public Service, (1967); 2) the Conference on the Theory and Practive of Public Administration, (1967); 3) the Minnowbrook Conference; (1968); and 4) the publication of two works in 1971: Toward a New Public Administration in a Time of Turbulence edited by Dwight Waldo. Each of the above is examined in terms of contributions to the development of the new public administration.     

In search of the new public management

Managing the New Public Services. Edited by David Farnham and Sylvia Horton. Macmillan, Basingstoke, 1993. Pp. 282. £35 hb, £11.99 pb.

Rediscovering Public Services Management. Edited by Leslie Willcocks and Jenny Harrow. McGraw‐Hill, London, 1992. Pp. 341. £18.95 pb.

Not For Profit, Not For Sale ‐ The Challenge of Public Sector Management. By Michael Starks. Policy Journals, Newbury, 1991. Pp. 168. £25 hb, £9.95 pb.

Public Sector Management. By Norman Flynn. 2nd edition, Harvester Wheatsheaf, Hemel Hempstead, 1993. Pp. 203. £29.95 hb, £10.95 pb.     

The democratic polity's search for the knowledgeable public administrator: an argumentative essay

Today public administrators, as many others, desire to be known as professionals or those knowledgeable enough to carry out their tasks without outside interference. By examining their claims to have expertise to carry out their public tasks, we provide a critical evaluation of the professionalism of public administrators. Our argument is that public administrators may not have sufficient knowledge to carry out their public tasks without the knowledge (help) of others. Suggesting that public administrators need to have more “public” knowledge of the public interest, we suggest ways that they can become more knowledgeable and more compatible with the tenets of political democracy.     

Public administration and public policy: old perspectives,new directions

Public administration has rather studiously avoided serious consideration of its ties to public policy throughout most of this century. The politics/administration dichotomy leaves a lasting legacy. Policy has a central place in the ongoing effort to explain what public administration is and how it functions. Policy defines the purpose of agencies, stipulates much of the detail about their organization, provides authority and legitimacy, and makes them important -- probably the most important--instruments of policy effectuation and evaluation. Public administration has traditionally displayed an interest in management; it has been studied, taught, and practiced as method, “how to.” This instrumentalist orientation has addressed successively different perspectives, all subsumed within the rubric of public administration. The first of these emphasized administrative reform, followed by an interest in scientific management. These left a legacy that largely treated administration as an end in itself, divorced from matters of policy. Further developments during the depression and post-war years gave prominence to human relations and decisionmaking. These newer orientations emphasized public administration's non-involvement with policy, although decisionmaking proved less inward-oriented and contributed some methodological insights for better understanding policy's ties to public administration. Decisionmaking's preoccupation with unifunctional organizations accountable to a single power center has proved a formidable obstacle to empirical investigations of policy/administration ties, however. This dilemma calls for new perspectives from which to study these ties; one promising perspective is the examination of administrative involvement in successive stages of the policy process.     

The professional as public servant: the decision-making dilemma

Administrative decision-making is increasingly complicated today by conflicting responsibilities that pressure decision-makers in different directions. Public servants are responsible to the law, Congress, administrative superiors, the agencies in which they serve, and the public. Those public servants who are members of a profession, attempting to apply special expertise and knowledge to the solution of public problems, face a set of even more complex responsibilities, governed as they are by their own professional codes of conduct whose tenets must be melded with the other obligations of governmental decision-makers.

Conscientious governmental officials are likely to base their decisions on their responsibilities to the public, in light of moral and ethical criteria as well as professional standards (where applicable), while recognizing their accountability to their organizational superiors. Civil servants who are members of a profession frequently find themselves making extremely complex decisions for which they must accept the responsibility for the application of their professional ethics in the context of their many other obligations.

The decision-making task of professionals who are also civil servants is often, therefore, an especially difficult and painful one. Cases of deep moral conflict will occur as they try to resolve their conflicting responsibilities.     

The ideology of professionalism in public administration: implications for education

One of the most influential themes in contemporary public administration is the focus on professionalism. As Dwight Waldo has argued, public administration should act as if it were a profession even if there is hardly any chance of becoming one. This article will explore the pedagogical implications of the ideology of professionalism on education, and how it has impacted the intellectual development of the field. It will be argued that the intellectual baggage of professionalism poses critical challenges to the meaning and substantive purpose of public administration.     

Reforming organisation culture for quality: some psycho-social dimensions

The essential argument advanced in this paper is that to effectively reform organisation culture one needs to understand its interactive nature. The psychodynamics involved are highlighted through a discussion of a recent study and it is argued that these psychodynamics within the organisation produce a psychological fingerprint of the culture. The implications of transforming culture in this context are then explored.     

Creating a new organizational culture: the key to total quality management in the public sector

Total Quality Management (TQM) as a business strategy has been recognized by managers in the public sector since the late 1980s. While much has been written about the need for TQM and its strategies such as quantitative measurement and statistical analysis, team work and worker participation, few empirical and theoretical studies have been carried out or published on the connection of organizational culture to the implementation of TQM. Many leaders in the field have asserted that significant organizational cultural change will be required to ensure the success of TQM. This paper examines the changes that may be required in the process, and presents a synopsis of the need to (perhaps) reexamine the definition of organizational culture and the perspective of management, public or private, to make the culture of an organization more compatible with desired values.     

Evaluating public policy: The administrative role

If public administrators are not heavily involved from the beginning in the development of public policy, policy implementation and program evaluation may not be possible. The tasks and people needed for organizing policy change are identified and the roles of the public administrator in these efforts are discussed. This article describes three legislative efforts in which public administrators were heavily involved at the beginning stages of policy development; administrators helped to create programs that were subsequently more amenable to evaluation.     

Roward a public philosophy of public administration: a civic perspective of the public

The thesis of this article is that a publicphilosophy of public administration needs to be formulated. It must not be based upon romantic and technocratic approaches as past efforts have been. It must rest instead upon a revitalized concept of the public that stresses the importance of public interdependency, public learning, public language, and a critical evaluation of the relationship between the role of the state and public administration. This emphasis has important implications for the respective responsibilities of both academicians and practicing administrators.     

The world's trading system in the post cold war era: implications for public administration

The authors of this article argue that the world is evolving into a regional bloc trading system with important public policy implications. Recent developments in North America and Europe suggest that regional integration is becoming an alternative approach to the multilateral trade deliberations under the auspices of the General Agreements on Tariffs and Trade (GATT). The reasons for the evolution are suggested in this article, and arguments are presented on how the negative implications of this trend in world trade can be countered effectively by constructive domestic and international government action.     

Two dimensions of the Europeanization of election programs: The case of the Czech Republic

This article represents a contribution to the debate over the Europeanization of political parties, one of the hot topics in contemporary political science. It explores the extent of Europeanization in political parties represented in the lower chamber of the Parliament of the Czech Republic by means of an analysis of party election manifestoes. The extent of Europeanization in these documents is analyzed using a bi-dimensional conceptualization. The first we call the quantitative dimension, assesses the space taken by the topic of European integration in each manifesto. The second one we call the qualitative dimension. This, using the analysis of content, measures the degree to which the European integration issue is elaborated in the programs. Using this conceptualization, we analyze the election manifestoes of five Czech political parties in the period 1996–2006.     

Decentralisation and government provision of public goods: The public health sector in Uganda

While many developing countries have devolved health care responsibilities to local governments in recent years, no study has examined whether decentralisation actually leads to greater health sector allocative efficiency. This paper approaches this question by modeling local government budgeting decisions under decentralisation. The model leads to conclusions not all favourable to decentralisation and produces several testable hypotheses concerning local government spending choices. For a brief empirical test of the model we look at data from Uganda. The data are of a type seldom available to researchers–actual local government budgets for the health sector in a developing country. The health budgets are disaggregated into specific types of activities based on a subjective characterisation of each activity's ‘publicness’. The empirical results provide preliminary evidence that local government health planners are allocating declining proportions of their budgets to public goods activities.     

Institutionalising ethics in the queensland public sector: Discussion of research into ethics education for public officials

This paper presents a case for a comprehensive approach to the institutionalisation of ethics in public sector organisational contexts. It argues that education and training have a central role in such strategies. The setting for this discussion is the State of Queensland, Australia, which is currently implementing a public sector ethics program. In particular, the author reports and analyses research conducted in the State of Queensland, Australia, in the latter half of 1993. The research explored the expectations of Queensland public sector managers as to the nature of ethics education programs. Analysis of the research supports the view that, with some reservations, public sector managers indicate significant support for the institutionalisation of public sector ethics in an educational framework.