Peter Drucker's "Deadly Sins in public administration"

Management books sell like hot cakes – their stacked titles at airport and High street bookshops appealing to your inner cowboy spirit beating off the enemy to achieve success and admiration.

“Management of change” used to be particularly popular – with the various steps for undermining resistance and achieving catalysing coalitions identified with exclamation marks. I should know because this Annotated Bibliography for change agents has been part of my In Transit – notes on good governance since 1999

But managing change in the public sector is another matter….it just doesn’t seem to be sexy…But why is this? There are actually more management positions in the public sector than in the private – whether as Directors or policy makers on both the political and official sides of what is a dual system. So that translates into more potential readers if not buyers than in a tightly hierarchical private company where the focus is so often the boss. Are publishers that myopic or stupid?

Or do we snap up the management book in an imaginative flight of fantasy – to create a magic world in which we are the respected leader and people jump to our wisdom??

The real reason for the paucity of books on reform of public services in the bookshops, I suspect, is caught by what the man who invented modern management said in 1980 about “the deadly sins in public administration”. That was Peter Drucker and the sins were –

• giving lofty (unspecified) objectives without clear targets which could be measured, appraised and judged

• doing several things at once without establishing, and sticking to, priorities

• believing that "fat is beautiful" ie that abundance not competence gets things done

• being dogmatic, not experimental

• failing to learn from experience

• assuming immortality and being unwilling to abandon pointless programmes

Some people read management books to help them become better managers but I suspect that those are a small minority and that the main reason these books fly off the shelves is for the good feeling of vicarious success they give their readers. It’s like a detective story – everyone likes to see the mystery explained…

Whereas books on public management reform simply bore on about the problems…..and publishers are not stupid – they know that the public prefers more uplifting stuff. And that’s surely why Reinventing Government was, in 1992, the first (and still only) best-seller of that genre. Like “In Search of Excellence” of a decade earlier, it gave us a winning formula

And I suspect that’s why Penguin publishers were willing to take a risk in 2015 and publish no fewer than two books on public management reform - Michael Barber’s How to Run a Government so that Citizens Benefit and Taxpayers don’t go Crazy (2015); and  The Fourth Revolution – the global race to reinvent the state; by John Micklethwait and Adrian Woolridge (2015). Both books tell a largely positive story of the promise of reform…Barber was Tony Blair’s “Head of Delivery” in the British Cabinet but has now reinvented himself as a "Deliverology" Guru.

“The Fourth Revolution – the global race to reinvent the state”

Micklethwait and Woolridge are managing editors of “The Economist” weekly and, given my hostility to the “smart” simplistic commentary of that journal, I have resisted buying the book for the past 4 years… But, on the basis that it's better to know your enemy, I relented last week and have now read their “Fourth Revolution” which they helpfully summarised on the ultra-neoliberal Cato Institute website

I could have saved myself the trouble because the Peter Drucker quote above conveys the negative part of their message so much better.

But let me remain true to the fair soul that lies within me – for this is a rare popular book and should be treated with respect - and rehearse their argument…

The book’s Introduction starts promisingly with a tour of the China Executive Leadership Academy in Shanghai and mentions the Central Party School in Beijing which I remember visiting….But before we reach the present, we are treated in the next hundred pages to an explanation of the three (or 3 ½) previous revolutions - embodied in the names of Hobbes (of Leviathan fame); Locke and JS Mill; and the Webbs. Hobbes legitimized the State as force; the second stage

began with the American and French revolutions and eventually spread across Europe, as liberal reformers replaced regal patronage systems — “Old Corruption,” as it was known in England — with more meritocratic and accountable government.

English liberals took a decrepit old system and reformed it from within by stressing efficiency and freedom. They “stole” China’s idea of a professional civil service selected by exam, attacked cronyism, opened up markets, and restricted the state’s rights to subvert liberty. The “night-watchman state,” advanced by the likes of John Stuart Mill, was both smaller and more competent.

Even though the size of the British population rose by nearly 50 percent from 1816 to 1846 and the Victorians improved plenty of services (including setting up the first modern police force), the state’s tax revenues fell from £80 million to £60 million. And later reformers like William Gladstone kept on looking for ways to “save candle-ends and cheese-parings in the cause of the country.”

The Fabian Webbs gave us the Third revolution - providing the theoretical grounding for the British welfare state...even if Bismarck's Germany beat them to it. 

Then follows a short chapter entitled “Milton Friedman’s Paradise Lost” whose message is –

during the 1980s, when Margaret Thatcher and Ronald Reagan, inspired by classical liberal thinkers like Milton Friedman, temporarily halted the expansion of the state and privatized the commanding heights of the economy. We dub this a half revolution because, although it harked back to some of the founding ideas of the second “liberal” revolution, it failed in the end to do anything to reverse the size of the state.

The next 60 pages look at the lessons we should take from California, Singapore and China.

The American lessons are negative – ironically summarised as “seven deadly sins” – and relate to union power. Given all the hype from Al Gore’s programme from 1993 of Reinventing Government, you would have expected some mention – let alone exploration - of this experience, not least for the veiled reference in the sub-title. But not a single one! And no mention either of Osborne and Graeber’s 1992 best-seller of the same name. On the other hand, when it comes to Singapore and China you can sense the relish and admiration – and also in the chapter about the transformation of the state in Nordic countries;

Finally 30 pages on “Fixing Leviathan” – basically through “outsourcing”, decentralisatiom and experimentation; and 30 pages on the role of the state – taking us back to Peter Drucker.

But what I find most curious is the absence of a single reference (even in the notes!) to any of the voluminous academic (or consultants) literature on public management reform....I can well understand their journalistic judgement that the academic "reform industry" has nothing sensible to say to anyone....

Final Thought

But the state spends about 40% of our GNP – that’s our taxation! Surely we deserve to know what’s going on there – we certainly have a fair number of “special correspondents” for subjects such as education, economics, social policy, health, environment. Of course there are some subjects which have journalists salivating and publishers eagerly approving titles - Government “waste”? Ah, now you’re talking!!…..Government “blunders”?….even better!!!…..”Who runs this country?” That sounds suitably paranoiac!!!!….

My recommended reading below is restricted to books aimed at the general public (rather than academics and students) and is therefore light on examples of efforts in government reform……

Useful Reading
Some of the books in this list are included simply to illustrate a genre. The titles in italics are those I have found readable and useful in thinking about managing change in the public sector over the past 30 years. I have tried in each case to explain why…..

- Radical Help – how we can remake the relationships between us and Revolutionise the Welfare State; Hilary Cottam (2018) an inspiring example of experimental work discussed here

- Dismembered – the ideological attack on the state; Polly Toynbee and David Walker (2017) An angry call to action written by 2 journalists. This is the book which inspired me to write a series of blogs which blossomed into How did Admin Reform get to be so sexy?

- Called to Account – how corporate bad behaviour and government waste combine to cost us millions; Margaret Hodge (2016). Written by the woman who was, until recently, the indomitable Chair of the powerful parliamentary Public Accounts Committee. I have still to read it so include simply to demonstrate that such books exist (and in paperback!)

- How to Run a Government so that Citizens Benefit and Taxpayers don’t go Crazy; Michael Barber (2015). Interesting – if a bit self-serving – series of advice notes from the guy who became Tony Bliar’s management guru in the UK Cabinet

- Creating Public Value in Practice – advancing the common good in a ….noone in charge world; ed J Bryson et al (2015),  The great update of their fantastic 1995 book (see below)

- Who Governs Britain?; Anthony King (2015) A typical academic take on the issue which I include simply as an example of the genre

- Stand and Deliver – a design for successful government; Ed Straw (2014) A rather partial management consultant’s perspective which again I include as a rare example of the genre

- The Establishment – and how they get away with it; Owen Jones (2014) a withering critique of the British power elite

- The Blunders of our Governments; Anthony King and Ivor Crewe (2013) A bit disappointing and put into context by this excellent review by Matt Flinders

- People, Politics and Change - building communications strategy for governance reform (World Bank 2011). May be a bit technocratic but, at the time, it was like a breath of fresh air….You get the entire book here….

- Public Sector Reform – but not as we know it; Hilary Wainwright (Unison and TNI 2009) A rare readable case study of a bottom-up  approach to reform based on a case study of one city

- Governance Reform under Real-World Conditions – citizens, stakeholders and Voice (World Bank 2008). Very clearly written – with excellent analyses and diagrams. Again the entire book

- Managing Change in OECD Governments - an introductory Framework; O Melchor (OECD 2008)

A useful statement from the other global body
- An International Comparison of UK Public Administration (National Audit Office 2008) a typical consultants' analysis

- Systems Thinking in the Public Sector – the failure of the Reform regime and a manifesto for a better way; John Seddon (2008) Seddon was a rare voice of common sense – although I include this more as another rare example of consultants actually trying to justify themselves

- Squandered – how Gordon Brown is wasting one trillion pounds of our money; David Craig (2008). Not one I would recommend – there are quite a few of these books around.

- British Government in Crisis; Chris Foster (2005). A very good analysis by an experienced consultant

- The Essential Public Manager; by Chris Pollitt (2003) is, by far and away, the best book to help the intelligent citizen make sense of this field

- Leading Change – a guide to whole systems working; M Attwood, M Pedlar, S Prichard and D Wilkinson (2003). This one I have yet to read – although I have always found Mike Pedlar a good analyst. The link gives the entire book

- Governance in the 21st Century (OECD 2001). A useful analysis of the challenges facing state systems in the new millennium. The chapters by Perri 6, Sabel and Albrow are particularly stimulating. A click on the title gives you the entire book  

- Change Here – managing change to improve local services (Audit Commission 2001) The full 100 pages are here – and it’s a great read

- The Captive State – the corporate takeover of Britain; George Monbiot (2000) The best critique of its time

- Banishing Bureaucracy – the five strategies for reinventing government; D Osborne and P Plastrik (1997) 5 years on from “Reinventing Government”, Osborne had another go. This is part I of his book and looks at how Thatcher and Major tried to understand and manipulate the DNA of the State

- “The State Under Stress – can the hollow state be good?” Chris Foster and F Plowden (1996) Easily the best analysis of its time of the different ways in which the state was being broken up

- Leadership for the Common Good – tackling public problems in a shared power world; S Crosby and J Bryson (1995) One of the best – and the entire book accessible by clicking the title

- Really Reinventing Government; Peter Drucker (The Atlantic 1995). The guru’s reflections on the Reinvention game…. 

- The Deadly Sins of Public Administration; Peter Drucker (1980) The grand old man of management socks it to the American Society of Public Administration just as Thatcher and Reagan get underway

Is it people who change systems? Or systems which change people?

Individualists say the former; sociologists and fatalists the latter.

And both are right!

Change begins with a single step, an inspiring story, a champion. But, unless the actions “resonate” with wider society, such people will be dismissed as mavericks, “ahead of their time”.

Change of any sort – whether an organisational reform or a social movement - is an intervention in a social system. Like an organism, it will quickly be rejected or absorbed unless there is some such “resonance”.

A significant number of people have to be discontent – and persuaded that there is an alternative before there will be any movement.

And the wider system has to be ready for change.

Robert Quinn’s Change the World (2000) is still one of the few books to focus seriously on this question of how one individual can change history….

Formal and informal systems are a well-recognised fact of organizational life. In 1970, Donald Schon coined the phrase “dynamic conservatism” to describe the strength of the forces resisting change in organisations – an update almost of Robert Michels’ “iron law of oligarchy”. Whatever new formal systems say, powerful informal systems ensured systems remained largely unchanged.

I remember vividly the discussions which ran in the 60s and 70s in the professional journals about rationality and change – with names such as Donald Schoen, Chris Argyris, Ametai Etzioni, Warren Bennis, Charles Lindblom and Herbert Simon to the fore (Alvin Toffler was simply the populiser)

These, of course, were the academic scribblers in whose midst American society was threatening to escape control….a moment perhaps best described in Adam Curtis’ documentary The Century of the Self (2002).

But it was The Aquarian Conspiracy – personal and social transformation in the 1980s; by Marlyn Ferguson (1980) which at the time caught the spirit of the age and posed the essential challenge both in its title and subtitle. Alas, it was a challenge soon to be marginalised…..

Those of us who had bemoaned the inertia of our bureaucracies were suddenly caught unawares by the speed with which change was unleashed…. In the 1990s, managing change became as popular as sliced bread. And soon indeed had its own recipe -

·         communications, leadership and training to ensure that people understand what the reform is trying to achieve – and why it is needed and in their interests

·         Development and enforcement of new “tools of change”

·         “Networking” in order to “mobilise support” for the relevant changes

·         building and “empowering” relevant institutions to be responsible for the reform – and help drive it forward

We are these days advised always to “control the narrative” and to carry out “stakeholder analyses” – to track who will be affected by the changes and how the indifferent or potentially hostile can be brought on side or neutralised. Out and out manipulation...,,and the world is wise to it....at last!!

making change stick

It will take some time to get through Governance Reforms under real world conditions – the World Bank E-book I mentioned yesterday. It apparently came out in 2008 – but presumably has only now been made available as an E-book. I spotted it on http://blogs.worldbank.org/publicsphere/
Up until now, the World has focussed on the WHAT of administrative change and rarely looked at the HOW. And, as we all know, the devil is in the detail. The reason? Its constitution forbids it from anything that smacks of politics and, as a result, its staff are predominantly US trained economists.
The “real world” phrase in the title is a real slap in the face to the economists who (patently) don’t live in the real world. Critical study of the World Bank has been a real cottage industry – I have about 10 books in my own library alone. Some years back there were several active campaigns to abolish it – initially because of the environmental damage and huge displacements of indigenous people its large-scale damming projects caused. “50 years is enough” was one of the slogans. Under Wolfensohn there was good intent but hubris. Wolfowitz’s brief tenure brought ridicule and his replacement, Zoellick, few hopes. But all has been quiet since then. This publication is, certainly, a good sign – of brains actually being applied with some decent results to an important issue.

The last 3 of the 6 questions it is written around are what we consultants deal with on a daily basis and are not normally what you expect to see the World Bank deal with -
- How do we build broad coalitions of influentials in favour of change? What do we do about powerful vested interests?
- How do we help reformers transform indifferent, or even hostile, public opinion into support for reform objectives?
- How do we instigate citizen demand for good governance and accountability to sustain governance reform?

I tried to address some of these questions in several of my own writings – and, a few years back, had got to the stage of suggesting what I called and “opportunistic” theory of change –
• “Windows of opportunity present themselves - from outside the organization, in crises, pressure from below
• But reformers have to be technically prepared, inspire confidence – and able to seize and direct the opportunity
• Others have to have a reason to follow
• the new ways of behaving have to be formalized in new structures

Laws, regulations and other policy tools will work if there are enough people who want them to succeed. And such people do exist. They can be found in Parliaments (even in tame and fixed parliaments, there are individual respected MPs impatient for reform); Ministries of Finance; have an interest in policy coherence; NGOs; Younger generation – particularly in academia, policy shops and the media
The question is how they can become a catalytic force for change – and what is the legitimate role in this of donors?”
The Paper is number 8 on website (just click publicadminreform in the list of links in the right hand column on this site

The paper by Matthew Andrews which starts part 2 of the book weaves a very good theory around 3 words – acceptance, authority and ability.

Is there acceptance of the need for change and reform?
• of the specific reform idea?
• of the monetary costs for reform?
• of the social costs for reformers?
• within the incentive fabric of the organization (not just with individuals)?

Is there authority:
• does legislation allow people to challenge the status quo and initiate reform?
• do formal organizational structures and rules allow reformers to do what is needed?
• do informal organizational norms allow reformers to do what needs to be done?

Is there ability: are there enough people, with appropriate skills,
• to conceptualize and implement the reform?
• is technology sufficient?
• are there appropriate information sources to help conceptualize, plan, implement, and institutionalize the reform?

A diagram shows that each of these plays a different role at the 4 stages of conceptualisation, initiation, transition and institutionalisation and that it is the space of overlapping circles that the opportunity for change occurs. “Reform space”, at the intersection of acceptance, authority, and ability, determines how much can be achieved. However the short para headed - Individual champions matter less than networks – was the one that hit nerves. The individual who connects nodes is the key to the network but is often not the one who has the technical idea or who is called the reform champion. His or her skill lies in the ability to bridge relational boundaries and to bring people together. Development is fostered in the presence of robust networks with skilled connectors acting at their heart.
My mind was taken back almost 30 years when, as the guy in charge of Strathclyde Region’s strategy to combat deprivation but using my academic role, I established what I called the urban change network and brought together once a month a diverse collection of officials and councillors of different councils in the West of Scotland, academics and NGO people to explore how we could extend our understanding of what we were dealing with – and how our policies might make more impact. It was, I think, the single most effective thing I ever did. I still have the tapes of some of the discussions – one, for example, led by Professor Lewis Gunn on issues of implementation!

Sad that the recent OECD paper which tried to look at the change process was so inadequate. I mentioned it on a previous blog -
In 1999 I devoted a chapter in my small book - In Transit; notes on good governance -to a summary of the various texts on managing change which was then such a fashionable subject. And one of the "key papers" on the website is a 63 page "Annotated bibliogaphy for change agents".

The 2 best things I have ever read on the subject are Robert Quinn's Deep Change; and Buchanan and Boddy's The Expertise of the Change Agent - public performance and backstage activity (Prentice Hall 1992)
Paul Bate's Strategies for cultural change (1994)is also a highly original and neglected book which presaged the recent fashion on that subject.
Useful summaries of the last 2 books can be found on pages 47-48 of the Annotated Bib I've just mentioned - I like in particular the 5x4 matrix I reproduced on styles of change he suggests.