my list of useful comparative papers on public management reform

Iain MacWhirter is one of the links I recommend in the sidebar – and yesterday’s post on the latest phase of the banker’s scam in the UK is a good example of his writing. Cold mist has been surrounding the house for the past few days – and the trees had a delicate glow of snow this morning. But usually the snow is deep by now.

Yesterday I was still collating what I consider are key references for my briefing note on public management reform efforts (in Europe) and beginning to give some thought to the sort of structure my note will need.

First, however, I need to reread the “seminal accounts” – which, despite the large number of academic titles on comparative work in this field, are fairly small in number since most academic overviews which purport to be comparative actually fall into one of two rather different categories. First there are the ad-hoc collections of case-studies illustrating the priorities of a particular country. The best of this are written around a common set of questions – but most leave it to the author to decide how he wants to write about an experience.
The second type is more comparative – but focussed on a particular tool or approach eg financial, performance management, personnel, agencies, decentralisation etc For example the 2008 book on Managing Performance – international comparisons by Brouckaert and Halligan. A weakness of these books for the practitioner is that they are written to gain points in the academic community – and have therefore to use whatever description they contain into a specialist discourse. Academic discourse is bad enough – but some of the recent post-modernist are evil!
It is for this reason that the most useful books from the practitioner point are those which have been specially commissioned for a customer in the state sector eg OECD or written by an international body. So far my list includes the following -

Public sector reform in Western Europe (1997) Overview paper by Toone and Raadschelder to a larger academic study
Why is it so difficult to reform public administration? Government of the future – getting from here to there (1999) Series of OECD Conference papers
Public Management Reform – a comparative analysis (2000); Academic book by Pollitt and Brouckaert
Performance or compliance – performance audit and public management in five countries (2002); Academic book by Chris Pollitt
International Public Administration Reform – implications for the Russian Federation (2003); Commissioned study by Nick Manning and Neil Parison of the World Bank
Evaluation in public sector reform – concepts and practice (2003); an academic book by Herbert Wollmann
Responses to country questionnaire (2005); national inputs to an OECD survey
International Comparison of UK’s public administration (2008); Report commissioned by National Audit Office
Commentary on international models of good government (2008); Report commissioned by National Audit Office

Perhaps the most useful are the Manning report and the second last paper.
The Manning report (about 400 pages) selects countries considered to have some common features with Russian which might make their experience interesting. These are - Australia, Brazil, Canada, Chile, Finland, Germany, Hungary, Netherlands, New Zealand, Poland, South Korea, UK, USA on which there are individual chapters. The analysis sets up a typology of perceived problems and subsequent reform tools. Then at the results – suggesting that some countries have forces of resistance which make them “low traction” – for which certain tools only are relevant
The NAO paper is perhaps the most intriguing.It suggests that good public administration can be defined by sets of “values”,” outcomes” and “enablers”.
Good PAs are responsive, transparent, accountable, equitable and have a public service ethos.
These can be measured by high quality services, public confidence and trust, good policy advice, culture of seeking value for money and “stability and continuity”
“Enablers” are Culture of performance, Management; Appropriately skilled public Administration; Good leadership; Capacity for change. The report then identifies comparative indices on these outcomes and enablers to rank the UK system

The paintings are all by Atanas Mihov (1879-1974) one of my favourites for his use of colour. Born Stara Zagora. Graduated 1904 from Drawing School. Sofia where he studied under Vesin and Mrkvichka. One of the initiators of Bulgarian realistic painting.

1906-09 teacher in Silistra; 1910-12 Razgrad; 1918-23 Russe. War artist during Balkan War and First WW. Settled in Sofia 1923 where he worked in Knyazhevoo until 1932. I wish I cd find out more about him

remembrance

Today was my father's birthday - he would have been 102 - the same age my mum reached! My
October 16th posting - "fathers" - was about him. I honour once again his memory - what he gave me and what he stood for. He would have appreciated this picture - boats, church and foreign places....

a day's reading

I vowed to do a blog each day – partly to encourage the tiny readership I have but also because it is an important discipline – writing is more challenging than talking – it reveals the gaps in your logic and information. And I’ve found it salutary to put on record some of the discoveries which give life its daily delight. And, when you’re a bookish sort of person, that will include insights gained from books. That indeed is one of the main purpose of the blog – to share useful references in the field in which I’ve chosen to spend so much of my life.
Anyway, I have failed to deliver on my daily quota – mainly because I was going through one of these phases of disgust with reading. I was bloated! Books and work – a life not quite in balance? More of that, perhaps, in another post. In the meantime I simply have to admire those such as Matthew Taylor (see links) who are able to make regular posts – with helpful references to the writings of others. One of features I admire in Matthew’s blogs is the honesty with which he confesses his self-doubts. There are millions of us “symbolic analysts” (as Robert Reich memorably called us) who spend our lives scribbling and meeting in ways which our ancestors would find shocking – and being well paid for it. No wonder that the angst sometime shows through!

OK enough of the guilt. What have I found in recent days which is worth sharing? My focus at the moment is a rather challenging assignment in China. Subject to final medical and visa clearance, I depart in 5 weeks and have now started to think myself into the task. I have first to prepare a “Baseline study” on the state of public administration reform there – imagine!! And, as part of that, to draft various briefing papers on the lessons from the countless initiatives of European states in this area eg performance and quality management.
I want to hit the ground running as far as the second part of the initial work is concerned and am therefore trying to first to track down as many recent assessments on the European experience as I can. I do my best to keep up to date – but it is only in the break between assignments that I have to do the surfing and reading which is needed. Earlier this year, for example, I discovered that I had missed quite a few key documents from the British Cabinet Office and yesterday I came across some interesting reports which the National Audit Office had commissioned from academics on innovation in the public sector. I’ve not been able to get separate internet references for the various documents but punch “innovation government” in the NAO search engine and you’ll get 3-4 interesting papers . The NAO also commissioned PWC to do a review of “Good Government” which focuses on France and USA.
The Cabinet Office has also published a useful study of what they regard as good government initiatives here
“Innovation”, “good government”, “improvement”, quality management”, “performance management” etc The language itself confuses – and, to some post-modernists, is itself the product. I hope to return to this issue which is referred to by the academics who have made this their specialism eg Boivard, Brouckaert, Loeffler, Peters, Pollitt. The European Group of Public Administration has lhad a special committee exploring the issue of productivity in the public sector for some years. Their papers can be accessed here You can see why I had no time yesterday to blog – I was too busy surfing!

I also came across an interesting overview from 2004 by Elaine KamarckShe made some intriguing references to the work of President Vincente Fox of Mexico (2000-2006) and when I googled this item I was referred to an article in an open electronic journal I had forgotten about – The International Public Management Review. A glance at the article on the Mexican experience of reform (by Dusaugge) persuaded me that their experience is very relevant to the Chinese! Read it for yourself at And today, I discovered the Scandinavian Journal of Politics – whose articles I am able to access courtesy of Wiley. Some fascinating accounts of what they’ve been up to which rarely get to the mainstream journals. Sorry I’m not able to share them – I’ll try to summarise at some point in the future.

are human resources people?

I’ve mentioned already the inimitable, little bombshell called Scottish Review which pops 2-3 times a week into my electronic letterbox. It’s been demonstrating the critical skills which the mainline media have lost by conducting in recent months a simple and one-man campaign to make senior executive pay in Scottish public Agencies and public bodies (such as Health Boards) more transparent and has scored several palpable hits. More of that in a minute.
Today’s issue had a short piece sparked off by the author meeting some of his colleagues who had recently retired from middle-level positions in the public service, noticing how more relaxed they looked. “One in particular had been transformed from a tired and careworn individual to a man with a spring in his step and a smile on his face. These were not people who had been in the wrong job, or had lost interest in their professional responsibilities. On the contrary, they had given many years of good service but had simply been ground down by the system and, in the end, were glad to get out. They mentioned a variety of factors which had made retirement a welcome release (or, in a few cases, had impelled them to seek early retirement): the lack of any acknowledgement of their contribution; endless pressure to increase output; the insane demands of an oppressive bureaucracy; less and less time to attend to the matters that they regarded as priorities; periodic restructurings which achieved nothing; managers who failed to inspire trust or respect

The writer (Walter Humes) concludes thus “

Despite all the 'supportive' measures introduced by Human Resource units, significant numbers of long-standing employees have ceased to experience the job satisfaction that motivated them previously and have been glad to escape the constraints of the workplace. Their experience should be taken seriously and used as a basis for reviewing current assumptions about how to treat staff. There is a difference between getting the most out of people and getting the best out of them. In my experience, staff are motivated not by the proliferation of back-covering ‘policies’ and so-called 'entitlements', but by a simple combination of clear expectations, fair treatment, recognition of achievement, backing at times of difficulty, and leadership by example. Underlying all of this is a disturbing question. What kind of people rise to the top when the prevailing culture is one which employs a dishonest rhetoric of employee care, and which alienates the genuinely good guys to the point where they simply want out? It seems a recipe that will allow the calculating, the self-seeking and the cynical to flourish. This perhaps explains why some of our public services are so urgently in need of radical reform. The barbarians are not just at the gate: in some cases, they are running the place”

. For the full article see here
Interesting that I should read this the same day I accessed a very good paper by Chris Demmke of the European Institute of Public Administration which reviews recent development in HRM in European member states - What are Public Services Good at? Success of Public Services in the Field of Human Resource Management; Study Commissioned by the Slovenian EU Presidency Professor Dr. Christoph Demmke/Thomas Henökl, Researcher, EIPA and Timo Moilanen, Researcher, University of Helsinki (EIPA May 2008)
To get a true picture, we always need both academics and vox pop!

Finally revenons aux moutons – pay for senior public executives. Kenneth Roy, the courageous editor of this great little publication, wonders in today’s posting whether the Prime Minister has perhaps been following his campaign. Gordon Brown spoke out strongly yesterday about naming and shaming highly paid senior executives in the public sector. One of them actually stated that he would work for 20% less! In recent postings Roy has been questioning the effectiveness of bodies such as Audit Scotland which are supposedly responsible for ensuring that all is well financially in public bodies

A comment from Marianna Clyde gives a sense of the significance of Roy’s campaign -

Well done on lifting the lid on Audit Scotland. There is indeed a cosy little world of consultants and private accountants benefitting at the public expense while the rest of us suffer. And what does Audit Scotland's staff do all day when their work is done for them by private contractors? And doesn't that rather go against the spirit of 'independent auditing' to hire outside firms? How independent is that?
It is also pretty extraordinary that 'in Scotland, executives and non-executives in public bodies have the right to withhold their consent for disclosure [of salaries] and neither the Auditor General nor Audit Scotland can compel them'. Why? What is the legal basis for this? There is a popular conceit in Scotland that we are naturally a more democratic and egalitarian people than the English, and that the coming of the Scottish Parliament would return us to our 'natural' state. But such disclosures dispel such comfortable myths and show a lazy, slavish, sluggish society apparently at ease with the legitimacy of 'reputation management' as a morally acceptable political technique, a society so comfortable with being managed it has subsumed its critical apparatus and is content to suffer vast and unjust inequalities without asking 'why'? But perhaps no more, if the Scottish Review continues to illuminate the dark corners and ask the awkward questions and expose the fact that Scotland is run by a cliquey, self-satisfied, self-regarding establishment of public sector grandees aided and abetted by their worshipful acolytes in the media and their equally moribund, uncurious politicians in the parliament. Never since the Letters of Zeno appeared in the Caledonian Mercury in December 1782 ('sleep, in a state, leads to slavery' – Zeno) criticising the lack of accountability of the political system of that time, which kick-started the political reform movment, has a series of articles done more to expose the shortcomings of a growing, unaccountable managerial elite and the growth of its management machine. It would be interesting to know what work the 'consultants' employed by Audit Scotland did. For my hopes for a vibrant, genuinely democratic Scottish society I sincerely wish 'reputation management' wasn't one of them!"

back in mountains

Romania is an amazing country - with many beautiful places even if the wine, paintings and hospitality are not as impressive as its neighbour, Bulgaria. But Bucharest is a disaster - and kills creativity. That's the reason for the absence of blogging. The last few days have been dreich - but I drove this morning through the mist and was rewarded by the sights of the peaks of the Bucegi mountains - both at Busteni on the main road to Brasov and here in the house.
For an excellent take on the moral implications of the UK banking scandal - see Craig Murray's post of 5 December - "pity he wasn't a banker". Interesting for us Scots that "banker" rhymes with "wanker"!

organisational narcissism

One of the issues which has puzzled me is the enormous gap between the rhetoric of management books and the organisational reality experienced by both staff and consumers. I found some answers recently in a book which came out a few years backs by Shoshana Zuboff and James Maxmin - The Support Economy: Why Corporations are Failing Individuals and the Next Episode of Capitalism (2004). Between 1988 and 1994, Zuboff used acaemic funding “to follow a group of visionary top managers and watched each one fall prey to corporate politics (which she compares to the 18th century French court), self-interested boards and the whims of financial analysts reacting to short-term fluctuations in a company's earnings"
For Zuboff, managerial capitalism was so successful because it focused inward on the production of products. Henry Ford’s staff wanted product differentiation for the rich consumers who were able to buy cars – Ford saw the potential of economies of scale in offering only one product. The new system created great wealth but it also allowed the development of layers of management. “Organisational narcissism” is the result. Management sits at the centre of this universe and we are on the outer rim of the solar system. We are treated as transactions; we are made to conform to the rules of the organisation. We are treated with indifference and contempt both as employee and as consumer (which is seen as weak and feminine – “production” is the word and the world which matters!)
An early section of the book spells out the nature and implications of the new society of individuals the new-found wealth and technology has created - complex people who want to take control of their lives and whose needs, the authors argue, can best be described in relation to “sanctuary", "voice" and "connection". These new people have outgrown the old organisations which remain rooted in their inward product focus ("dynamic conservatism" was the wonderful phrase used by Donald Schon almost 40 years ago).
This has created a chasm or “transaction gap” between new people and old organisations. A powerful chapter of the book shows the failure of the various “waves of the future” which have swept companies in the last 2 decades – reengineering, quality management, relationship management etc The basic DNA of the “standard enterprise logic” overwhelmed them all and made consumers and staff alike even more alienated. A very powerful case she describes is that of an airline official in Rome who made it her business to "go the extra mile" but was unable to continue this by the combination of new central diktats and superior disapproval. All too often, the new systems and technologies seem basically to allow more aggressive and intrusive marketing.
“The Support Economy” tries to map out a different system – called “distributed capitalism” in which the individual (thanks to the internet) is at the centre of the universe. Eleven principles are set out – in rather obscure language, it must be said. The essence of business is to supply us – through a system of federations - with levels of support that will allow us to live our lives the way we want to live them. The providers of support will be our advocates acting as intermediaries between us and the supply federations.
This part of the argument is not as convincing – indeed the language becomes very abstract and esoteric. I also missed any references to Richard Semmler - whose Semco company tears up the management books. Companies which remain private (ie not quoted on the stock exchanges) or which are cooperatives have, presumably, more hope. Zuboff does not address this critical issue. And a minority of change endeavours do succeed – that is clearly shown in the chapter which rightly points to the general failure of the various expensive management fads and fashions of the past decades. So, clearly, if preconditions and leadership are right, change does work. Surely that is the area we should be focusing on?

What are the implications of these arguments for those involved in the reform of government systems? After all, most government reforms (certainly advice from management consultants) of the past 2 decades have been based on the assumption of the effectiveness of private management and the positive lessons which are contained in quality management, performance management etc. At one extreme, people could argue that the public sector is better placed to make a success of these ideas – since it does not have the poisonous framework of boards and shareholders expecting short-term profit. But the behaviour of ruling politicians is more and more similar to that myopic framework – and, of course, it has always been more difficult in the public sector to develop measures of performance which (a) can be agreed and (b) don’t cause counter-productive reactions (see....).

British government offers an object lesson in what not to do – control things from the centre. “Strong” local government is needed – with electoral and dialogue systems which enforce prior consultation and debate. Independent foundations should carry out the comparative assessments which act as a spur to initiative. Neither officials nor politicians can be relied upon to work for the public good – rather do we need an understanding that professional associations, voluntary groups, parties and officials are four groups with different interests and perspectives between which a balance can and should be struck.

the scandinavian contribution

The Scandinavian contribution to public administration - at both a practical and theoretical level - is under-estimated.
Sweden, for example, pioneered Agencies and the Ombudsman.
Norway's distinctive take can be seen in the book co-authored by Tom Christensen in 2007 Organisation for the public sector – instrument, culture and myth
And Scandinavian countries as a whole blazed a trail in the lid 1980s with their “free commune experiment” – whereby municipalities were invited to make bids for being freed (on a pilot basis) from central controls. The process was monitored and evaluated and, if judged successful, led to legal changes. A real example of pilot work! Google, interestingly, hardly recognises it - so few people now will remember it. Talk about loss of institutional memory!! And in 2004, the Norwegian parliament instituted the most rigorous review of the state of democracy in their country the world has ever seen. Good article on its findings and recommendations here.

Jon Pierre is a prolific and clear write who is a contributor to Gothenburg University’s fairly new Institute on Quality of Government whose papers can be accessed here. I visited the political science people there in the late 1980s to learn about the Scandinavian “free communes experiment” and had a very friendly and lively reception as a local political reformer from another Scandinavian country. After our formal discussions, their Prof (could it have been Pierre??) took me to a night club whose bouncers took exception to a piece of dust on my coat. When the nearby police were called, I presented them with a rose which I happened to be carrying. The police were not amused – and I will never forget the frisson of recognition I had then about state totalitarianism!
The Institute papers focus on the classic values – and how they have been affected by the new public management. Trust and corruption, for example, figure in their papers. See an example here One of the recent paper by Pierre deals with the crucial issue of how the legal tradition can be reconciled with the new logic of markets -
“If we accept the argument that public-sector organizations operate according to a different logic, with a multitude of objectives and with a different organizational structure and leadership compared to for-profit organizations or NGOs then it is only logical to argue that there are, or should be, rather distinct limits to what the public sector can learn from for-profit organizations (Christensen et al., 2007). If we furthermore agree with Suleiman (2003) that the public administration, and indeed the public sector as a whole, is an integral part of democratic governance, it becomes even more obvious that standards and benchmarks from the corporate world really have rather to little to offer when it comes to assess the quality of public-sector organizations. Yet, the normative point of departure of NPM was to deny any specificity of the public sector. Public management, to the extent that there was any managerial thinking, was arcane and had not adopted modern corporate philosophies. Indeed, management was believed to be a “generic” organizational task; there do not exist any significant differences between managing public or private organizations (Peters, 2001
The same philosophy was applied to reform of organizational structure, to performance measurement, to customer-provider exchanges, to efficiency improvements, and to organizational leadership and managerial autonomy. Reform only saw one of the two faces of public administration and forgot, or ignored, or circumvented, legality and the role of the public bureaucracy in enforcing the law and ensuring legal security and protection. Today, we seem to be at an impasse where the legal nature of public administration can no longer be ignored or circumvented by administrative reform, yet the architects of reform have few ideas about how to deal with legality or what could replace it. Therefore, we need to think carefully about what legality means to public administration, the extent to which is a critical feature of a public bureaucracy and the extent to which NPM, in various guises, is compatible with legality, transparency, due process, predictability and a public service ethos”.
The reference to Suleiman is a fascinating 2003 book about the implications of recent administrative reform – with the provocative title - Dismantling Democratic States

making sense of public sector reform

A decade ago, I had a few months to prepare for a major new assignment in central Asia – which turned into a 7 year spell in that part of the world. I used those few months to write a small book about what I thought I knew about my discipline. Some of the chapters of that book are “key papers” one, six and thirteen on my website. And what I think I learned from those 7 years is reflected in key paper 3.
Now I face another new continent – and am trying to do the same thing. Perhaps not a book – but a series of reflections. When you’re in the middle of an assignment working with a beneficiary, you have to be very practical. The last thing you want is an academic article. But – between assignments – academic journals can give you perspective; help you catch up with changing fashions (“skirt lines are falling this year”); and brief you on development in countries about which you know little.
My language and background is English/UK – so US and Commonwealth developments in public management have been easier to follow in the international journals than French and German. Low country and Scandinavian writers are more comfortable in English and their developments have, therefore, been easier to follow.
Even so, it’s obvious from looking at the back numbers of the UK journal Public Administration, for example, that I’ve missed a lot of useful writing about European developments recently. A particularly useful issue was one on traditions of government – and how they’ve changed recently under the onslaught of NPM.
The UK authors I’ve found useful are Hood, Pollitt, Stoker and Talbot (academic) and Mulgan and Peri6 (think-tanks) Today I found another - Martin Evans'Policy transfer in a global age
All countries, of course, are different - in their values, traditions and structures (see de Hofstede and Trompenaars for more) but the UK is quite exceptional in the ease (speed and extent) with which it can and does change its systems.

For the past 30 years, the country seems to have been in a never-ending process of administrative change.

It's easier to explain the "how" than the "why" of this . Despite the setting up in 1999 of a Scottish parliament and government, the country remains centralised in the worst sense of the word (it was a Conservative Minister who called the system "an elective dictatorship" – and that was in 1976 before the Thatcher and Blair regimes). What this means is that there is no effective political, ethical, social or intellectual force left to challenge the foibles of the executive. Charter 88 recognised this truth long before the rest of us – but it still seems too intellectual a point. Other countries have coalitions and constitutions to deal with.

Margaret Thatcher thought that markets were the answer - New Labour think central managers are. Although Newlabour is right-wing in its economic approach, it has compensated by the Stalinism of its social and organisational interventions. For all the talk in the 1990s of a third way, of partnerships and networks, NewLabour has not begun to understand what an organic approach to administrative change might look like. The Cabinet strategy unit has basically given rulers a new vocabulory of progressive words to use - behind which hides the old leviathan.