PUBLIC SECTOR CULTURE MANAGERIALISM OR MULTICULTURALISM?

Abstract: Despite dramatic change in the Australian public sector, little attention has been paid to organisational culture. With the importation of private sector strategies and structures the traditional values of public administration have been eroded. Public organisations and their members have experienced consequences of "culture shock", even "cultural revolution". Managerialism is an introduced culture which has been criticised by some academics and public servants. It is seen as inappropriate to the distinctive values and operating context of the public domain, as purporting to value-free technique while in effect operating as the mystifying ideology of a dominant elite. Managerialism has been constructed, it is argued, on simplistic and now superseded concepts of rational "management man", goal setting and planning. While managerialism is not the culture which will endow public organisations with new meaning and propel them to excellence, it can expect to increase its hold in the absence of the development of new models of the culture of public organisation. While new public sector cultures will need to be organisation-specific, to accommodate the differentiation between and within public organisations, an overarching framework of public sector values and principles will be required. One of the distinctive features of most public sector organisations is die number and diversity of their stakeholders. A multi-cultural model of public sector culture is proposed, which construes this diversity of subcultures as an instrument of strategic flexibility.     

Putting the Resource-Based View of Strategy and Distinctive Competencies to Work in Public Organizations

A key to the success of public organizations is their ability to identify and build capacity, particularly their distinctive competencies, in order to produce the greatest value for key stakeholders. This article grounds this proposition in the resource-based view of organizations and presents a method for identifying and making use of distinctive competencies in the form of a "livelihood scheme"—a business model appropriate for the public sector—that links distinctive competencies to organizational aspirations and goals. The case of a major public sector training and consultancy unit that is part of the United Kingdom's National Health Service is used as illustration. A number of conclusions are offered in the form of a set of propositions tied to the resource-based view and related research issues. The results contribute to both public strategic management theory and practice.     

Oh Ye of Little Faith! A Response to Davis and Wanna

In response to falls in public sector employment and the closure of public management programs in universities, Davis and Wanna (1997) raised the significant question: ‘Does the teaching of public administration have a future?’ A study of the changes in roles, functions and competencies and education needs of ‘new’ public sector managers suggests that universities have a distinctive role in meeting their need for management education.     

Electoral competition and minority alienation in a plurality system: Sri Lanka 1947–77

Till recently, Sri Lanka was distinctive amongst the less developed countries for having a parliamentary democracy based on regular and fair competitive elections. The present article analyses the long-term impact that the plurality system of elections had on the consolidation of political alignments and cleavages in Sri Lanka in its post-independence period. The study finds that the very success of the plurality system in encouraging popular participation, bi-polar competition, political cohesion and stability contributed to engendering their unacceptable extremes in Sri Lanka's resource-scarce context. In the longer run, the increasing radicalization of the electorate, acute party competition for control of the state, ethnic sectarianism, and absolute parliamentary majorities served to undermine the democratic aspects of the system.     

A Future for Public Sector Appeal Systems Under New Managerialism?

This article examines the fate of public sector appeal systems under the managerialist reform agenda. Is new managerialism wedded to a particular shape of appeal system? Is it wedded to the dismantling of this traditionally distinctive feature of public sector employment in Australia? To explore these questions, this article examines the roles which public sector appeal systems play in human resource management and their implications for public sector reform. It then compares traditional appeal rights and processes with those currently operating in the state, Commonwealth and Northern Territory public services. The article also discusses the implications of the dramatic changes in some jurisdictions, including Victoria and Western Australia, for the effectiveness of appeal processes, and human resource management in the public sector.     

Managing local development: lessons from Spain

This paper analyzes an operational method that regional government agencies can use to enable locally-based firms to compete effectively in their industries. This method, which emerged in southern Spain after the transition to democracy, embodies many precepts found in the contemporary public management literature. The paper begins the task of cumulating the clinical knowledge needed to translate action plan precepts into specific managerial decisions.     

THE PECULIAR TASKS OF PUBLIC MANAGEMENT: TOWARD CONCEPTUAL DISCRIMINATION

Abstract: Recent contributions to AJPA have suggested new conceptual directions for public management in response to the stand-off between managerialists and their critics. In emphasising the inherent political dimensions of public management, this article seeks to build on these contributions. It does so by combining some of the insights of previous contributors with a simple matrix devised originally by American scholar James Q Wilson. The central proposition is that attempts to render public management more like private management have been too far-reaching, and do not adequately appreciate the intractable difficulties that stem from the types of task that are peculiar to public organisations. It is suggested that there should be less reliance on dubious metaphors borrowed from the business domain. Instead, a greater degree of theoretical eclecticism and conceptual discrimination should be used in understanding and developing public management.     

WHAT DO CHIEF ADMINISTRATORS DO? FINDINGS FROM VICTORIA

Abstract: This study explores the views of Victorian Chief Administrators (CAs) about their jobs. CAs report that the environment of administration has changed in three broad areas: greater public expectations, a breakdown of the politics-administration dichotomy and difficulties reconciling managerial accountability with limited managerial autonomy. In response, CAs describe a distinctive pattern of concerns — with the "what", "why" and "how" of agency operation. First, they attempt to shape the "what" or the ends and values their agency creates. Second, they act to enhance the "why" or their agency's legitimacy and the support it attracts from constituencies. Third, CAs are concerned with "how" to mobilise organisational resources, particularly by moulding culture towards the agency values they identify. These findings suggest that CAs have devised understandings of their responsibilities which conform more to theoretical conceptions of leadership than either administration or management. The research points to the emergence of a distinctive type of administrative leadership.     

On claims of culture and duties of recognition in democratic states

One important way in which individuals and groups express their ideas and principles, and present their proposals and demands, is in the language of identity or difference. They argue that what they value and what they deserve are related to their distinctive identities. Working within the framework of a political theory of recognition, I argue in this article that particular cultural communities may have reasonable expectations that their distinctive identities receive public recognition, and that others may therefore have good reasons to give those identities such recognition. To be specific, I contend that there are distinct and complementary ways in which the state and its citizens should respond to identity-related demands for public recognition. Using terms introduced by Axel Honneth, I argue that the state should give ‘public attention’ to some cultural communities, and that citizens should show one another ‘well-meaning attention’. I conclude that both these forms of attention can be justified by reference to a new, fourth principle of recognition, so long as this is understood as a principle of political inclusion rather than one of cultural recognition.     

Thinking about politics

There are distinctive modes of thinking about politics, three of which are discussed here. A mode consists of a characteristic domain of relevance, filing system, and grammar of beliefs. A person relying on Mode A treats politics as an extension of interpersonal experience. A person relying on Mode B organizes political thinking around a set of salient group identifications. A person relying on Mode C views public objects in terms of their consequences for collective goods. The three modes are illustrated by applying them to concrete issues in a hypothetical manner: Vietnam, bussing, and attitudes toward presidential candidates. The concept of surrogate attitudes is developed and various implications of the theoretical argument are discussed.     

Islam and Plurality,Old and New

All of the historical religions emerged in a context of religious plurality and, at times, bitter inter-religious rivalry. In our late modern age, the challenge of plurality has become all the more pervasive. This paper examines the varied traditions of knowledge and practice developed by Muslim jurists, political leaders, and religious thinkers to engage people of non-Muslim faith, from the time of the Prophet Muhammad to today. It highlights three themes. First, there was never any single message with regard to how the Muslim community should engage plurality. Second, the historical practice of Muslim rulers has often shown greater variation (and occasional "liberality") with regard to questions of plurality than has jurisprudence. Third, and last, however, as with the practitioners of other faiths, Muslims in modern times have had to revisit and rethink their traditions with regards to plurality, and both inclusive and exclusive currents have emerged. The challenge of plurality is likely to remain a core issue in Muslim politics and public ethics for some years to come.     

PUBLIC MANAGEMENT OR PUBLIC ADMINISTRATION?

Abstract: The debate over managerialism has been the most controversial issue in Australian public administration journals in recent years. Although most articles have been critical, there have been responses in favour of the changes by senior public servants. One unfortunate consequence of this debate has been the appearance of a gap between academic public administration and public service practice.
This paper argues that, from several angles, the work now carried out by public services is management rather than administration. It argues that managerialism is a long-overdue reform to a model which has outlived its usefulness. The traditional model of public administration was an irrelevance for many years; it was never efficient or effective and deserved to be replaced. However, public management does not necessarily mean the widespread and uncritical adoption of practices from the private sector. What it should mean is that a distinctive public management needs to be developed. This should take account of the differences between the sectors, but still recognise that the work being done by public servants is now managerial rather than administrative.     

Quadratic election law

The standard form of electoral system in the United States—plurality voting with one person, one vote—suffers from countless defects, many of which stem from its failure to enable people to register the intensity of their preferences for political outcomes when they vote. Quadratic voting, an elegant alternative system proposed by Glen Weyl, provides a theoretically attractive solution to this problem but is an awkward fit with America’s legal and political traditions. We identify the legal barriers to the adoption of quadratic voting, discuss modified versions that could pass muster, and show how even a modified version would address many of the pathologies of the existing system.     

Rebuilding Ukraine's hollow State: Developing a democratic public service in Ukraine

This article describes assistance that is being provided as part of an institution building project with a view to making a lasting impact on the development of a democratic public service of Ukraine. It explains the nature of the project and the strategies adopted to overcome difficulties. It compares and contrasts approaches adopted by technical assistance projects in assisting administrative reform. It also examines the special nature of the Ukraine project that arises out of the distinctive context and needs of Ukraine. The article continues by examining the role of external assistance in validating the Ukrainian Institute of Public Administration and Local Government's Masters in Public Administration and the contribution made to the development and delivery of the Masters programme. A special feature of the project is the series of one-month internships when IPALG students visit London. The internship programme allows students to identify aspects of UK experience relevant to changes that Ukraine wishes to make in its administrative culture. As part of this programme, students are placed in government organizations and NGOs. The placements are complemented by a series of change management seminars that enable students to evaluate options for change, to assess their own role in the change process and recognize the key stages in the change process. The project team has undertaken a full evaluation of the first presentation of the programme and the article presents the findings.     

Political values in independent agencies

Despite that independent agencies are typically justified in terms of technical efficiency, they inevitably have to make political judgments. How can political reasoning be legitimate in such institutions? This paper starts by investigating the merits of two prominent models. The “avoidance model” asks agency reasoning to stick to empirical facts and as far as possible stay clear of political values. By contrast, the “specification model” recognizes the need for constructive normative work, but confines it to the refinement of given statutes. This paper challenges both models and defends a third alternative. The “public reason model” requires agencies to ground their value judgments in a publicly accessible framework of reasoning, which is here interpreted as their overarching mandate. The paper argues that agency mandates should be conceived as distinct domains of reasoning, and it delineates three institutional virtues that enable agencies to track this domain.     

Theory and Methods in British Public Administration: the view from Political Science

This paper explores the contemporary history of that area of intellectual inquiry known as Public Administration. It focuses on developments in the 1980s and on the contribution of political science. It argues that the subject is diverse and characterized by competing theoretical frameworks. It evaluates organization theory, state theory, rational choice, public management and their associated methods. It concludes that Public Administration has reacted defensively to developments in the 1980s and that the distinctive contribution from political science lies in multi-theoretic research, methodological pluralism, setting one's own agenda, the avoidance of trivial organizations and the defence of public bureaucracies.     

Public finance management reforms in Somalia: a case study on Somalia's finance professionals

There is an unprecedented and pressing need for a major legislative public financial management reform in Somalia to bolster the technical and professional efforts of implementing a modern system of public financial management across the country. Currently, there is no independent auditing authority to enable citizens to access information on the use of public resources. However, the success of any reform depends on establishing strong public budgeting systems as well as developing strong public finance training programs and policy linkage on financial management policies and procedures.     

A dynamic Duverger’s law

Electoral systems promote strategic voting and affect party systems. Duverger (Les partis politiques, 1951) proposed that plurality rule leads to bi-partyism and proportional representation leads to multi-partyism. We show that in a dynamic setting, these static effects also lead to a higher option value for existing minor parties under plurality rule, so their incentive to exit the party system is mitigated by their future benefits from continued participation. The predictions of our model are consistent with multiple cross-sectional predictions on the comparative number of parties under plurality rule and proportional representation. In particular, there could be more parties under plurality rule than under proportional representation at any point in time. However, our model makes a unique time-series prediction: the number of parties under plurality rule should be less variable than under proportional representation. We provide extensive empirical evidence in support of these results.     

Condorcet Polling

For a single-winner multi-candidate election, it is broadly accepted that the Condorcet candidate (if one exists) should win. Voting systems do not always elect the Condorcet winner. Public opinion polls are not generally designed to try to identify a Condorcet candidate. They could easily be constructed to do so, however. The resulting process may be called Condorcet polling, for which various designs are presented herein. Information from Condorcet polling may enable some voters, under a plurality or runoff system, to bring about an outcome they prefer by voting strategically for the Condorcet candidate when they would not otherwise do so.     

Distinguishing Different Types of Coproduction: A Conceptual Analysis Based on the Classical Definitions

Coproduction of public services means that services are not only delivered by professional and managerial staff in public agencies but also coproduced by citizens and communities. Although recent research on this topic has advanced the debate considerably, there is still no consensus on precisely what coproduction means. This article argues that rather than trying to determine one encompassing definition of the concept, several different types of coproduction can be distinguished. Starting from the classical definitions of Elinor Ostrom and Roger Parks, the article draws on the literature on professionalism, volunteering, and public management to identify the distinctive nature of coproduction and identify basic dimensions on which a typology of coproduction can be constructed. Recognizing different types of coproduction more systematically is a critical step in making research on this phenomenon more comparable and more cumulative.