STRUCTURE AND ACTION AS CONSTRUCTS IN THE PRACTICE OF PUBLIC ADMINISTRATION*

Abstract: In this paper we first examine the dominant instrumental paradigm of organization, and the critique to which it has been subjected from both social action theory and a more structural analysis of organizational life. Secondly, we draw on critical theory to construct an alternative paradigm. This addresses some of the problems left by critiques of the dominant paradigm, focuses on the relationship between structure and action, and the way in which each of these constitutes, and is constituted by, the other. In the final section we outline the implications of this analytical approach for analysis and practice in public administration. Public administration is about what people do, but also about how this activity is perceived and talked about. This distinction between thought and practice is not the same as the distinction between the academic and the practitioner. Although the academic operates largely in the world of thought — through teaching, research and writing — the work of the practitioner also rests on foundations in the world of thought, namely, the perception of the organization as an instrument for the accomplishment of some purpose, and of the administrator as the controller of that instrument for the better achievement of the end. We contend that these approaches to analysis and practice mask significant aspects of the ways that relationships within and between organizational contexts come to be structured and conducted, and do not provide a basis for understanding or evaluating either organizational processes or the activities of managers within these.     

FASHIONS AND FANTASIES IN PUBLIC ADMINISTRATION*

The title of this address results in part from discontent with much of the literature of Public Administration and Public Policy. It is mild discontent, and I do not want unduly to depreciate our writings. But I stop reading many books and articles disappointed, at finding old or obvious ideas restated in new words; at seeing a useful idea refined by scholasticism into complex and empirically untestable propositions; feeling that I am being "got at"; worst of all, with a sense that the work casts only a fitful or elusive light on the important problems it claims to deal with. Schuyler Wallace said years ago when I was starting my academic career that administrative study had been mainly built on the basis of half-truths and fictions,¹ and I believe this is still true. If I had remembered this phrase earlier, I might have called the paper "Half-Truths and Fictions in Public Administration". If it reflects some real discontents, it is also intended to be a bit jokey. Should the jokes fall flat or degenerate into vulgar abuse, blame the author.     

DEVELOPMENTS IN NEW SOUTH WALES PUBLIC ADMINISTRATION*

There are probably more changes taking place in public administration than at any previous time. In some sectors (like health) staff are now used to change; it has become a normal part of their everyday life. In other sectors (like road transport) it is a new experience. Some changes are the latest chapter in a long and continuing story. Clear objectives, downstream autonomy and performance monitoring have been issues for as long as most public servants can remember. The fresh ingredients added by New South Wales Incorporated are the management incentives that make a direct appeal to the self-interest of senior executives, and the ideology of competitive neutrality that mimics the price signals which motivate private enterprise. The intended results are less political patronage, smaller government, more accountability, better morale and higher productivity. Stated in these terms they are unlikely to cause controversy; the current political consensus is that they would constitute worthy goals for any government. However important differences of opinion will probably emerge over the order of priority for these goals. For example, how much should higher productivity be sought if it threatens accountability or morale? There is also likely to be debate between those who want everything in place immediately, even if it means industrial strife, and those who prefer a softly-softly approach.     

THE FOCUS OF REFORM IN COMMONWEALTH GOVERNMENT ADMINISTRATION*

Challenge to Established Convention … the simple image of the official as the instrument of Ministerial authority accountable to the Minister alone, working unseen, unheard and anonymous, is now seriously inaccurate.     

EXPLAINING HYBRIDITY IN PUBLIC ADMINISTRATION: AN EMPIRICAL CASE OF BHUTAN'S CIVIL SERVICE

Public administrations are mostly hybrid in nature with a combination of characteristics of different paradigms and models. In the first part of the paper, I use the notion of paradigms to explain a form of hybridity in public administration. The concept of paradigms in public administration is helpful in identifying a typology of the ideal types and their characteristics based on the main paradigms and models of public administration: the patronage system, the traditional public administration, the new public administration, and other emerging models such as public value management, responsive governance, and new public service. In the second part of the paper, through the trajectory of Bhutan's public administration history, we observe that its public administration exhibits characteristics that sit across the various paradigms and models of public administration. Thus, in doing so, the paper makes a significant contribution in applying the ideal type typology to explain how hybridity in public administration occurs in practice. Copyright © 2014 John Wiley & Sons, Ltd.