The state of public affairs after 11 September

There is a curiously subtle relationship between the public affairs function and the political world which it seeks to influence. A shock to the political system of the magnitude of the attack on the World Trade Center has effects on the practice of public affairs. Some of these impacts are obvious. Others will only become apparent with the passage of time. In its 15 years of existence the European Centre for Public Affairs has sought to be a ‘safe space’ in which the elements of the political world could meet and discuss in an independent manner and with a degree of academic rigour. From the moment of our founding, we rejected the idea of a world divided between government and lobbyists. It has always been our view that journalists and the media, lobbyists, both from civil society and from the corporate sector, and ministers, members of parliament and civil servants all form part of one seamless political world. They have the same fascination with power and with process. They are intimately and umbilically linked. With this holistic view of the political world, it is natural for the ECPA to be interested in assessing the impact of the events of 11 September on the practice of public affairs. Jointly with The Journal of Public Affairs and The Public Affairs Newsletter, we created a seminar at Chatham House on 9th January, 2002 entitled ‘Public Affairs and the World Crisis: What has changed since September 11th?’ Copyright © 2001 Henry Stewart Publications     

“新公共管理运动”的困境与转型——新西兰公共部门改革的反思及参鉴

新西兰公共部门改革是"新公共管理运动"的先锋,作为"改革实验室"和"政策创新者",因其彻底性、持续性及成效性被誉为"改革的典范"。然而近年来,西方公共管理学界提出了若干质疑,甚至认为"新公共管理运动已经死亡"。本文在考察新西兰公共部门改革实践的基础上,对实践模式的局限性及时代转换的压力两方面的批判性反思进行了梳理和分析:其"公平"与"公共"价值已经失落?是"经济学帝国"的扩张?还是"新泰勒主义"的表现?亦或是随着改革主题的衰落,数字时代治理的来临。对这一改革的实践发掘和理论反思对于当前我国政府职能转换与行政改革具有重要的参鉴价值:首先,推进改革的政府需要具备必要的能力基础;公共部门改革的核心命题是转变理念,优化政府职能,提高政府的效率和效能;而改革能否顺利推进,取决于广大民众和政府之间的深入互动;此外,改革需要尊重地方政府的主动性,充分发挥其作用。     

The Evolution of Chinese Administrative Studies: Where Is the Field of Chinese Administrative Science Headed?

Is Public Administration (PA) as a field of study a basic science? If not, could PA generally and Chinese PA (CPA) in particular become a basic science or a design science? To address these questions, this essay reviews pertinent literature to underscore the major problems, basic deficiencies, and critical issues of CPA, and then reviews ongoing CPA research to shed light on its future development. Our review shows that PA lacks an intellectual core that defines the nature of public administration as a professional practice, and in turn, the nature of PA as an academic discipline. Further, while CPA bears the same deficiencies, it also suffers from three maladies, namely, reductionism, traditionalism, and conservatism, which together reinforce mediocrity. In view of all these issues and problems, where CPA is headed? Our literature review reports some ongoing research breakthroughs in CPA, including ontological confirmation of public administration nature and identification of necessary conditions for effective administrative results, which form a basis to suggest that CPA may become a basic science and design science.

     

国家间公共政策的转移——概念、研究态势和理论

公共政策的制定者在决策过程中往往通过某种方式来参考其它国家的决策者在相似情况下的做法,包括正面经验和负面教训。这种政策转移(Policy Transfer)现象是公共政策制定和制度创新在现实中的一种主要途径和方式。论述分三个部分:首先,简述了政策转移的概念化过程,辨别了和其它相近概念的异同;其次,勾勒了本课题研究的多学科、多方法和多层次的态势,列举和介绍了一些代表性的研究实例;最后,探讨了相关的理论生成的问题。通过对有关政策转移问题研究的回顾、分析和总结,强调了我国政策转移中大量转移实践和理论研究缺失之间的矛盾现象;提出了开展我国政策转移研究的必要性和关注点;旨在引起我国公共政策的制定者和学者对这一课题的重视,为公共政策有关的决策实践和理论研究提供一个观察、分析和决策的角度。     

The New Public Service Revisited

The New Public Service describes a set of norms and practices that emphasize democracy and citizenship as the basis for public administration theory and practice. This article revisits some of the core arguments of the New Public Service and examines how they have been practiced and studied over the past 15 years. The authors conclude that neither the principles of the New Public Service nor those of the New Public Management have become a dominant paradigm, but the New Public Service, and ideas and practices consistent with its ideals, have become increasingly evident in public administration scholarship and practice.     

当代西方公共管理前沿理论述评

公共管理作为一门综合性的学科,其前沿理论五花八门,但其中比较宏观和有持续影响力的当属20世纪年70代末和80年代初兴起、到现在还在继续的长达二十多年的政府改革思潮.这一思潮的主要理论基础是20世纪60年代出现的公共选择学派.新公共管理、新公共行政/服务以及治理等前沿理论都与公共选择理论有着密切的关系,是公共选择理论的发展或是在批判公共选择学派的过程中形成的理论.这几个理论相关又不尽相同,与西方思想界都有着十分深厚的渊源,反映着不同思想阵营和不同理论之间的博弈,并没有达到能够相互替代的程度.它们的风行在中国的公共管理学界也引起了层层涟漪和概念上的混淆.从西方公共管理改革实践的历史背景出发,重点就这四大理论的特点、渊源和理论效度进行综述和评论,并讨论了它们对中国公共管理发展的启示.     

基于公众服务的网上行政审批系统模型研究

中国的电子政务建设刚刚起步,迫切需要各种理论和实践的支持。通过对电子政务重要组成部分———面向公众服务的行政审批系统的分析,从系统和工程的观点提出了可以应用到行政审批系统中的角色互动网络模型,并通过给出的模型建立行政审批系统的应用软件系统框架结构、网络体系结构、建设模式、运行管理模式。网上审批是信息时代对公共管理发展客观需要的现实选择。它的影响不仅在于手段的电子化,更重要的是还会引起管理价值、管理范式、管理权力、管理职能、管理组织、管理主客体等方面的变化。网上审批将通过信息技术与公共管理的有机融合促使公共管理由传统的管制管理向服务管理的转变。     

Topic Modeling the Research‐Practice Gap in Public Administration

The possible existence of a research‐practice gap is the topic of a long‐standing debate in the field of public administration. In this Viewpoint essay, the authors examine the agendas of scholars and practitioners using the topic modeling technique of computational social science. Topic modeling a content analysis of 35 topics identified in Public Administration Review and PA Times (3,796 articles) showed that just over 50 percent of topics were common to both groups, indicating shared interests. There were, however, topics that the two groups distinctly focused on. Moreover, scholars and practitioners attached significant differences to the weights allocated to the prominent topics in their writing. Taken together, these findings indicate that topic modeling can shed new light on the research‐practice gap in public administration.     

Towards Internationalization: A Critical Assessment of China’s Public Administration Research in a Global Context 2000–2014

Since the establishment of the Chinese Public Administration Society (CPAS) in 1988, public administration (PA) research and practice have grown considerably after a gap of more than 30 years. Emerging universities and local research institutes have established specialized departments/centers for PA. This study reports on mainland China’s performance in PA research by examining publication size, impact, and scientometric indicators, including China’s global publication share, growth rate, citation impact, and leading journals based on the last 15 years of publications data, as retrieved from the Social Science Citation Index (SSCI) database; recognized international collaborators and domestic contributors are also considered. Findings suggest that the quantity and quality of mainland China’s PA research has increased steadily, with mainland scholars playing equally as important roles as their international peers. Evidence suggests that mainland China scholars will continue to achieve international publishing success. Finally, opportunities and challenges brought about by internationalization are also discussed.     

多视角的公共行政观——评《公共行政学：管理、政治和法律途径》一书

《公共行政学:管理、政治和法律途径》一书是美国著名行政学家戴维·H·罗森布鲁姆和罗伯特·S·克拉夫丘克的力作,是一部在国际公共行政学领域中享有盛誉的经典著作.首先总结了该书提出的三种不同视角的公共行政观、公共行政未来发展九大趋势及坚持传统公共行政范式,力图将(新)公共管理纳入其框架之中的主要观点.其次,分析了该书将法律途径纳入研究视角、多视角地研究公共行政的多元公共行政观及重视公共行政中民主宪政的重要性三方面的贡献及创新之处.再次,指出本书中的三点不足之处:其一是并未达到作者所预期的"合各种途径"的目的;其二是结构略显庞杂,论述不够深入、细致;其三是视角较为狭隘,仅局限于美国.最后,对于该书对我国的借鉴与启示作用,认为:一方面由于中、美国情差异很大,应该慎重对待该书中的相关理论;另一方面应借鉴该书中适用中国的经验、方法,推进中国公共行政理论与实践的发展.     

The home front: Internal organization of public affairs in Dutch subnational governments

Dutch subnational governments such as municipalities and provinces are increasingly compelled to express their interests in the national and European political arenas. Effectiveness in these arenas requires an optimal arrangement of Public Affairs (PA) activities in the subnational organization. Based on 41 in‐depth interviews with prolific PA professionals and practitioners in the Netherlands, this article provides an overview of initiatives that subnational government organizations have to develop in their own organization after their “discovery” of how useful PA may be, but before the moment they enter the arenas. According to the participants, the creation of individual, collective, and regional commitment regarding PA is the first initiative. Subsequently, conditional and instrumental terms should be fulfilled, so that PA will be used as a tool to model PA messages. Concluding from the interviews, human aspects and internal cooperation determine the sensemaking of PA in a subnational organization, but a lack of arena knowledge frustrates this process.     

Integrating public affairs information strategy with organizational practices in healthcare delivery organizations

To develop and implement policy, lawmakers rely on the input from external experts and stakeholders. Public affairs professionals are responsible for monitoring the sociopolitical environment and responding to public policy proposals on behalf of firms and organizations. However, how public affairs operate intraorganizationally and develop information strategies is not clear nor consistent in the literature. The purpose was to explore how public affairs engage with internal stakeholders to leverage their knowledge for information strategies in responding to policymakers. Knowledge transfer served as a theoretical framework through a qualitative multiple case study of 3 not-for-profit healthcare delivery organizations. Primary data were collected using semistructured interviews from public affairs (n = 11) and healthcare professionals (n = 18) along with a review of organizational documents and public records. Patterns and themes emerged through cross-case synthesis, presented as a process-based model and theory. Public affairs structures and decision-making processes varied across cases indicating no coherent approach by practitioners. Intraorganizational engagement and knowledge transfer processes were managed both consistently and ad hoc, through informal and formal methods. Practitioner strategies and tactics were identified to facilitate internal interaction such as filtering policy issues and effective communication methods. Common institutional barriers were identified that made stakeholder engagement a challenge. This study provides insight into understanding how public affairs practice internally and supports the fundamental importance of linking knowledge into public policymaking.     

Accountability or Countability? Performance Measurement in the New Zealand Public Service, 1992–2002

This article examines how output classes and performance indicators have changed between 1992 and 2002 in five selected departments of the New Zealand Public Service. Process, output and largely artificial service quality performance measures have crowded out outcome, efficiency and effectiveness indicators, across the board. Both output classes and performance indicators have been highly labile, though the reasons for this remain speculative in the meantime. The New Zealand state sector is currently implementing a ‘managing for outcomes’ strategy, intended to overcome too strong a preoccupation with the production of outputs. However, because output classes remain the key feature of the Public Finance Act 1989 the means of ensuring and demonstrating policy effectiveness must be more broadly based than a reliance on the countability of organisational output classes and performance measures.     

Justice,Efficiency, and the New Public Management

In this article I aim to explore the link between two normative values, namely justice and efficiency, and the New Public Management approach. In pursuing this task I offer several critical arguments against some of the recent justice‐based objections levied against New Public Management by David Arellano‐Gault. I claim that Arellano‐Gault's account of the relation between justice and the New Public Management is seriously undermined by two conceptual flaws: (1) a conflation of right‐libertarianism, utilitarianism, and desert theories of justice and (2) a conflation of the technical/productive sense of efficiency with the social/distributive sense. Furthermore, I maintain that even when the different theories of justice and the different senses of efficiency are properly delineated, the case for necessarily linking NPM to a particular theory of justice is markedly unconvincing.     

Public affairs in the Czech Republic: an exploratory study of the current situation

The main goal of our research study was to describe and analyse the state of the field of public affairs (PA) in the Czech Republic. So far, PA has been outside the scope of academic interest, and no study has yet analysed the issues or development of PA in the Czech Republic. Therefore, this study not only brings a unique insight into the practice of PA professionals but is also the first of its kind. Our main focus was to describe the current situation and build a solid background of the profession and emerging field for further research: firstly, we characterise professionals working in the field (what is their professional background, education, income and goals); secondly, we want to define what are the main issues they deal with professionally (such as politics, lobbying and the energy sector); thirdly, we will describe the market itself and the level of professionalisation and institutionalisation; and finally, we wanted to analyse how PA as a field is understood and perceived by professionals. In our conclusion, we also state openly a few challenges we met during our research, and we set the next goals. Copyright © 2014 John Wiley & Sons, Ltd.     

Brenda Bryant: There Is Nothing More Practical than a Good Theory

Public administration values the relationship between theory and practice. Regrettably, theory and practice are regarded more often than not as separate purviews of two different groups—academics and practitioners—resulting in a perceived gap between the two. The doctorate of public administration program at the University of Southern California's Washington Public Affairs Center sought to span both worlds. This article by Beryl A. Radin of American University profiles one of its graduates, Brenda L. Bryant. The author traces her career development, experience in the doctoral program, as well as subsequent professional activities, ultimately highlighting why “there is nothing more practical than a good theory.”     

PAR’s Social Equity Footprint

During the 75th anniversary of Public Administration Review (PAR), this article examines the social equity scholarship published in PAR from 1940 to 2013. Less than 5 percent of all articles published in PAR since its inception focus on social equity. The articles published in PAR are primarily concentrated within the areas of personnel and public policy. Very few articles were published in the areas of budgeting or ethics. While social equity scholarship published in PAR has made a valuable contribution to understanding the career inequities of women and minorities in the public sector, scholars and professionals need to more thoroughly examine the black box of agency practice and structural inequities to examine why they persist. The challenge for future social equity research in public administration is to examine broader dimensions of equity and to understand how social inequities in administration can be mitigated.     

A Capacity for Central Coordination: The Case of the Department of the Prime Minister and Cabinet

For the Department of the Prime Minister and Cabinet (PM&C) the year 1987 can now be seen as pivotal in marking a clear end to a period of transition in coordinating structures in the Australian Public Service (APS) that had lasted roughly 20 years. The abolition in 1987 of the Public Service Board, formerly a powerful coordinating agency, is the most obvious marker of the change. The PSB's departure left the Secretary of PM&C with a role that is now often described as ‘head of the public service’. More broadly, the 1987 changes to the machinery of government both formalised and enabled a sea‐change in PM&C's role. Before 1987 a large policy initiation and development project would usually have been considered as beyond PM&C's scope. Since then, extensive and direct policy development work by PM&C has become common. The continuing debates have been over whether PM&C actually delivers in these roles (an empirical question) and how far it should play them (a normative issue). In this article we itemise the capacity, both continuing and developing, which PM&C has to support policy development. Traditional coordination mechanisms are an important part of this armoury and PM&C has long experience of most of them. However policy initiation and development calls for other tools which PM&C has had to develop over the past few decades. There is scope for conflict between the coordination and initiation/development roles. Understanding how a central agency like PM&C carries out each of them and balances the two can potentially contribute to debates on organisational design. We also address the normative issue: whether the growth of prime ministerial impact is a result of an increase in public service support or a cause of its increase ( Walter and Strangio 2007 ) and whether it should be restrained. We accept that the new developments give prime ministers the capacity to oversee policy arenas where once they could not, but regard this as a consequence as much of demand from above as of ambition within the department.     

The Public Administration Review and Ongoing Struggles for Connectedness

Facilitation of connectedness has been a fundamental role of the American Society for Public Administration (ASPA) and the Public Administration Review (PAR) throughout their six decades of professional service. Together, they have sought to link practitioners and academicians across subfields and varied levels of activities. As a foremost refereed journal, PAR has sought to encourage the linking of practice and theory through timely publication of methodologically disciplined research, informed analyses and commentaries, and constructive literature reviews and correspondence. These responsibilities have been persistently challenging. ASPA and PAR have served a dynamic field that has made some wrong turns and had others forced on it, resulting in failed autonomy, followed by increasing partisan politicization of governments and reduced reliance on professionally expert administration. For ASPA, it has created leadership and membership problems. For PAR, it has sometimes exacerbated difficulties in connecting practitioners and academicians, but it has also created more shared concerns as important subjects of inquiry. Challenges now are to serve both enduring and new spheres of the field that are afforded by international and domestic developments. Both ASPA and PAR are striving to do that. Globalization of public administration opens a world of opportunities today. Localization, as a fundamental of constitutional democracy, is a priority internationally, presenting an engaging paradox of global attention to both place and planet. That is linked in this commentary to the classic democracy-bureaucracy quandary that has constructively challenged public administration. While arrays of other important subjects, old and new, need to command attention in PAR, these are linked in this analysis to today's theory and practice of interdependent facilitative states to assess how the journal serves its responsibilities.     

Creating Public Value and Institutional Innovations across Boundaries: An Integrative Process of Participation,Legitimation, and Implementation

Public value creation has become a critical challenge, but existing approaches have limitations and it is unclear how they can be integrated. This article addresses this issue by analyzing four best‐practice cases in which public value was created through the integration of community indicators and government performance management. It identifies an iterative process of participation, legitimation, and implementation, with institutional innovations across boundaries between civil society, politics, and administration. These institutional innovations help integrate the often fragmented arenas of participation, legitimation, and implementation.