Post on 30-Dec-2015
transcript
Public Administration Nature and Role
Prof. Dr. Attaullah Shah PhD Civil Engineering ,M.Phil Eco ,MSc Structure Engg
MBA, MA Eco, MSc Envir Design,BSc Civil Engg (Gold Medal), Post Grad Dip Comp (Gold Medal)
Some Quotes
“I have nothing but contempt for the kind of governor who is afraid, for whatever reason, to follow the course that he knows is best for the State.” Sophocles, Antigone
If I have done the public any service it is due to my patient thought- Issac Newton
“One reason why George Washington Is held in such veneration: He never blamed his problems On the former Administration”
“The difference between management and administration (which is what the bureaucrats used to do exclusively) is the difference between choice and rigidity.” Robert Heller
The administration of justice is the firmest pillar of government”
George Washington 3
“The sublimity of administration consists in knowing the proper degree of power that should be exerted on different occasions.”
“It is far easier for the proverbial camel to pass through the needle's eye, hump and all, than for an erstwhile colonial administration to give sound and honest counsel of a political nature to its liberated territory.” Kwame Nkrumah Ghana
According to Ibn-e-Khaldun, a successful and viable administrative set up is that in which people’s participation is ensured. If the governed feel that they share the administrative process, the society would be stable.
4
CITY UNIVERSITY OF SCIENCE AND CITY UNIVERSITY OF SCIENCE AND INFORMATION TECHNOLOGY, PESHAWARINFORMATION TECHNOLOGY, PESHAWAR
Bio details of the Speaker
Prof.Dr. Attaullah Shah Vice Chancellor City University of Science and IT Peshawar Previously Director ( Planning and Projects AIOU) vc@cusit.edu.pk, pd@aiou.edu.pk, www.drshahpak.weebly.com,
drshah569@gmail.com +92-333-5729809, +92-51-9057212
Qualification PhD Civil Engineering ,M.Phil Eco ,MSc Structure Engg MBA, MA Eco, MSc Envir Design,BSc Civil Engg (Gold Medal), Post Grad Dip
Comp (Gold Medal)
Professional and Field experience: 25+ Years
Research Publications in refereed journals and conferences: 25 Journals publications+55 Conference publications
Areas of interests Project Planning and Administration Sustainable built Environment Construction project Management
7
Public Administration
Public administration is both an academic discipline and a field of practice;
Public administration houses the implementation of government policy and an academic discipline that studies this implementation and that prepares civil servants for this work;
As a "field of inquiry with a diverse scope" its fundamental goal is to advance management and policies so that government can function;
8
definitions
"the management of public programs" "translation of politics into the reality that citizens see
every day" "the study of government decision making, the
analysis of the policies themselves, the various inputs that have produced them, and the inputs necessary to produce alternative policies”
9
concerns Centrally concerned with the organization of
government policies and programmes as well as the behavior of officials (usually non-elected) formally responsible for their conduct;
Many unelected public servants can be considered to be public administrators, including heads of city, county, regional, state and federal departments such as municipal budget directors, human resources (H.R.) administrators, city managers, census managers, state [mental health] directors, and cabinet secretaries;
Public administrators are public servants working in public departments and agencies, at all levels of government;
10
Max Weber's theory of bureaucracy
Until the mid-20th century and the dissemination of the German sociologist Max Weber's theory of bureaucracy there was not much interest in a theory of public administration;
The field is multidisciplinary in character; one of the various proposals for public administration's sub-fields sets out six pillars, including human resources, organizational theory, policy analysis and statistics, budgeting and ethics.
11
more Public administration has no generally accepted definition,
because the scope of the subject is so great and so debatable that it is easier to explain than define.
Public administration is a field of study (i.e., a discipline)
and an occupation. There is much disagreement about whether the study of public administration can properly be called a discipline, largely because of the debate over whether public administration is a subfield of political science or a subfield of administrative science.
12
history: antiquity to the 19th century
Dating back to Antiquity, Pharaohs, Kings and Emperors have required pages, treasurers, and tax collectors to administer the practical business of government.
Prior to the 19th century, staffing of most public administrations was rife with nepotism, favoritism, and political patronage, which was often referred to as a spoils system.
13
history: antiquity to the 19th century
Public administrators have been the "eyes and ears" of rulers until relatively recently. In medieval times, the abilities to read and write, add and subtract were as dominated by the educated elite as public employment.
Consequently, the need for expert civil servants whose ability to read and write formed the basis for developing expertise in such necessary activities as legal record-keeping, paying and feeding armies and levying taxes.
As the European Imperialist age progressed and the militarily powers extended their hold over other continents and people, the need for a sophisticated public administration grew.
14
Taylor's approach
Taylor's approach is often referred to as Taylor's Principles, and/or Taylorism.
Main four principles (Frederick W. Taylor, 1911): Replace rule-of-thumb work methods with methods based on
a scientific study of the tasks; Scientifically select, train, and develop each employee rather
than passively leaving them to train themselves; Provide ‘Detailed instruction and supervision of each worker
in the performance of that worker's discrete task’ Divide work nearly equally between managers and workers,
so that the managers apply scientific management principles to planning the work and the workers actually perform the tasks.
15
POSDCORB
Gulick developed a comprehensive, generic theory of organization that emphasized the scientific method, efficiency, professionalism, structural reform, and executive control.
Gulick summarized the duties of administrators with an acronym; POSDCORB, which stands for planning, organizing, staffing, directing, coordinating, reporting, and budgeting.
Henry Fayol developed a systematic, 14-point, treatment of private management. Second-generation theorists drew upon private management practices for administrative sciences.
16
post–world war II to the 1970s The mid-1940s theorists challenged Wilson and
Gulick. The politics-administration dichotomy remained the center of criticism.
In the 1960s and 1970s, government itself came under fire as ineffective, inefficient, and largely a wasted effort.
The costly American intervention in Vietnam along with domestic scandals including the bugging of Democratic party headquarters (the 1974 Watergate scandal) are two examples of self-destructive government behavior that alienated citizens.
17
post–world war II to the 1970s There was a call by citizens for efficient administration to
replace ineffective, wasteful bureaucracy. Public administration would have to distance itself from
politics to answer this call and remain effective. Elected officials supported these reforms.
The Hoover Commission, chaired by University of Chicago professor Louis Brownlow, to examine reorganization of government. Brownlow subsequently founded the Public Administration Service (PAS) at the university, an organization which has provided consulting services to all levels of government until the 1970s.
18
post–world war II to the 1970s
Concurrently, after World War II, the whole concept of public administration expanded to include policy-making and analysis, thus the study of ‘administrative policy making and analysis’ was introduced and enhanced into the government decision-making bodies.
Later on, the human factor became a predominant concern and emphasis in the study of Public Administration.
19
post–world war II to the 1970s
Henceforth, the emergence of scholars such as, Fritz Morstein Marx with his book ‘The Elements of Public Administration’ (1946), Paul H. Appleby ‘Policy and Administration’ (1952), Frank Marini ‘Towards a New Public Administration’ (1971), and others that have contributed positively in these endeavors.
Public administration can be defined as a department in the executive arm of government responsible for the formulating and implementation of government policies and programmes.
20
1980s–1990s
In the late 1980s, yet another generation of public administration theorists began to displace the last.
The new theory, which came to be called New Public Management, was proposed by David Osborne and Ted Gaebler in their book Reinventing Government. The new model advocated the use of private sector-style models, organizational ideas and values to improve the efficiency and service-orientation of the public sector.
During the Clinton Administration (1993–2001), Vice President Al Gore adopted and reformed federal agencies using NPM approaches.
In the 1990s, new public management became prevalent throughout the bureaucracies of the US, the UK and, to a lesser extent, in Canada.
21
late 1990s–2000
In the late 1990s, Janet and Robert Denhardt proposed a new public services model in response to the dominance of NPM.
A successor to NPM is digital era governance, focusing on themes of reintegrating government responsibilities, needs-based holism (executing duties in cursive ways), and digitalization (exploiting the transformational capabilities of modern IT and digital storage).
22
Approaches to the study of public administration
Behavioural Approach System's Approach Ecological Approach Structural Functional Approach Public Choice Approach Contingency Approach
Public Servants as Leaders Public Servants as Leaders
Leadership is driving ahead of others. Acting when others are just thinking about it.
Leadership is taking care of the supporting team.
Not involving into their assignments.
Leadership is reaching the top and staying there..
Leadership is targeting the goal. Totally focused .
Leadership is nurturing the team in a new style.
Leadership is breaking all records..
Leadership is reaching the unreachable
Leadership is a blend of tradition and modern styles
Leadership is driving the competition away
Leadership is demonstration of courage. Leading by example
Leadership is passing on the knowledge and making leaders.
Leadership is challenging assumptions
Leadership is caring the little ones….
Leadership is managing the diversity….
Leadership is managing & driving the challenges…
Leadership is winning. Come what may.
Leadership is thinking, Communicating and doing.
Leadership is mentoring. Monitoring and motivating the team to win.
Leadership Styles
Autocratic (Authoritarian) Bureaucratic Democratic Coercive Transactional Transformational Laissez-Faire
Autocratic (Authoritarian)
Manager retains power (classical approach)
Manager is decision-making authority
Manager does not consult employees for input
Subordinates expected to obey orders without explanations
Motivation provided through structured rewards and punishments
When to use
Autocratic
New, untrained employees Employees are motivated Employees do not respond to any
other leadership style High-volume production needs Limited time for decision making Manager’s power is challenged by
an employee
Who are Autocratic Leaders?
Bureaucratic Manager manages “by the book¨
Everything must be done according to procedure or policy
If it isn’t covered by the book, the manager refers to the next level above him or her
Police officer more than leader
When to use
Bureaucratic Performing routine tasks
Need for standards/procedures
Use of dangerous or delicate equipment
Safety or security training being conducted
Tasks that require handling cash
Democratic Often referred to as participative style
Keeps employees informed
Shares decision making and problem solving responsibilities
“Coach” who has the final say, but…
Gathers information from staff members before making decisions
Democratic Continued
Help employees evaluate their own performance
Allows employees to establish goals
Encourages employees to grow on the job and be promoted
Recognizes and encourages achievement
Can produce high quality and high quantity work for long periods of time
When to use
Democratic To keep employees informed
To encourage employees to share in decision-making and problem-solving
To provide opportunities for employees to develop a high sense of personal growth and job satisfaction
Complex problems that require a lots of input
To encourage team building and participation.
Who are
Democratic Leaders?
The ear of the leader must ring with the voices of the people.
Woodrow Wilson
Coercive Power from a person’s authority to punish
Most obvious types of power a leader has.
Good leaders use coercive power only as a last resort: In today’s sophisticated and complex
workplace, excessive use of coercive power unleashes unpredictable and destabilizing forces which can ultimately undermine the leader using it.
When to use Coercive
To meet very short term goals
When left with no other choice
In times of crisis
Transactional Motivate followers by appealing to their
own self-interest
Motivate by the exchange process. EX: business owners exchange status and wages
for the work effort of the employee.
Focuses on the accomplishment of tasks & good worker relationships in exchange for desirable rewards.
Encourage leader to adapt their style and behavior to meet expectations of followers
When to use
Transactional Leader wants to be in control When there are approaching
deadlines that must be met Relationship is short term
A Result of the Leadership We Knew...
“We made workers into robots; we made them
into machines…
...Now, we want them to become a different kind of person: to come up with
new ideas.” Jack Smith, CEO, General
Motors
Transformational Charismatic and visionary
Inspire followers to transcend their self-interest for the organization
Appeal to followers' ideals and values
Inspire followers to think about problems in new or different ways
Common strategies used to influence followers include vision and framing
Research indicates that transformational leadership is more strongly correlated with lower turnover rates, higher productivity, and higher employee satisfaction.
Transformational cont.
Instils feelings of confidence, admiration and commitment
Stimulates followers intellectually, arousing them to develop new ways to think about problems.
Uses contingent rewards to positively reinforce desirable performances
Flexible and innovative.
When leaders want members to be an active part of the organization and have ownership to it
When leaders are building a sense of purpose
When the organization has a long term plan
When people need to be motivated
When to use
Transformational
"(He) possessed the gift of silence."
(Comment by President John Adams about George Washington)
Laissez-Faire Also known as the “hands-off¨ style Little or no direction Gives followers as much freedom as
possible All authority or power is given to the
followers Followers must determine goals, make
decisions, and resolve problems on their own.
Selecting a Style
Some people are motivated by reward
Some people are motivated by punishment
Social systems work best with a chain of command
When people have agreed to do a job, a part of the deal is that they cede authority to their leader
Remember the difference between a boss and a leader;
a boss says "Go!" –
A Leader says "Let's go!" ~E.M.
Kelly
671
681
69
The change of concept : Re-inventing government
Re-thinking the old questions: what government should do, how and for whom ? The debate is not for large or small state, but for a bad or good management of government !
Good government requires good governance.It is a managerial approach, aimed to reach efficiency, sustainable growth and better satisfaction of citizens needs
Good governance combines short and medium term policy :A) more cares and investments for solving the current needs of societies (job,
education, health) , but also B) coping with common society challenges (lack of resources, ageing population,
pollution, climate changes, quality of life, intensive migration and so on) Good governance adjust country development towards the changing world:
dynamic technological advance, openess of markets, global competition, higher citizens expectations for better life
70
Re-inventing government: new roles
Catalytic government: steering(policy and regulation) rather than rowing (service delivery) ;
Community-owned government: empowering rather than serving ; Competitive government: injecting competition into service delivery ; Mission-driven government: transformimg rule-driven organizations ; Result-oriented government: meeting the needs of the customer, not the bureaucracy ; Enterprizing Government: earning rather than spending Anticipatory government: prevention rather than cure Decentralized government: from hierarchy to participation and teamwork ; Market-oriented government: leveraging change through the market ; Good government- combination of all these new roles Government vs market: the old dilemma in new light: government as a driving force for
society changes, including new opportunities for people participation in social life and competitive business development !
71
From concept to policy:principles of good governance
Rule of the law Openess and transperancy Efficiency: results should reflect mission and goals? Efectiveness: inputs/outputs Citizens as a clients of government Accountability (how we used taxpayers money) Predictability and reliability Partnership with concerned parties Coherency in all government actions Principles are drawn from good practices (evidence based !) Principles are guiding rules and benchmarks for good governance for
all over the world
Leaders and Managers
Managers – set goals, plan actions, secure resources, set up structures, exercise control and getting results (to keep organization functioning properly and create orderly results)
Leaders – set vision and direction, create strategies to achieve vision, conceive actions steps to accomplish goals, align people and form coalition, motivate and inspire people to move forward (to promote future-oriented changes)
72
73
Characteristics Managers Leaders
Focus Do things the right ways Do the right things
Administration, problem solving
Direction setting
Reconcile differences Creativity and innovation
Seek compromises
Maintain balance of Power
Emphasis Rationality and control Innovative Approach
Accept and maintain status quo
Challenge status quo
Putting out fires Blazing new trails
Targets Goals, resources, Ideas
Structures, people
Orientation Tasks, AffairsRisk taking
Persistence Imagination
Short-term view Long-term perspective
74
Success Factors Tough-mindedness Perceptual capability
Hard work
Tolerance
Goodwill
Analytical capability
Points of Inquiry How and when What and why
Preference Order, harmony Chaos, lack of structure
Aspiration Classic good soldiers Own person
Favor Routine Unstructured
Follow established procedure
Approach with People
Using established rules Intuitive and empathetic
75
Personality Team-player Individualist
Relevance Necessary Essential
Thrust Blend in Stand out
Bring about compromise Lead Changes
Achieve win-win
Mentality "If it isn't broke, don't fix it" "When it isn't broke, this maybe
the only time you can fix it."
Adapted from Abraham Zaleznik, "Managers and Leaders: Are they Different?" Harvard Business Review (March-April 1992), and Warren
Bennis, "21st Century Leadership," Executive Excellence, Provo (May 1991).
76
Good governance : main policy aspects
Strategic management: mission, vision, strategy, action plans,innovations and changes
Government organizational structure, based on the principle-agent model(clear roles of all institutions)
Bulding up capacity to manage according to the principles( the new vision for public administration)
Professional policy making(pubcons,imp.assessment) Improvement of regulatory policies for business
development Better administrative services for citizens Public-private partnership(scenario win-win) Human resource management E-management Innovations,identification and dissemination of good
practices
77
Good governance-tool for growth and welfare in global world
Good governance- now it is a dominant policy and practice in developed democratic countries
Good governance role : through education, better business regulation and rational social policy, to contribute for sustainable economic growth and social welfare of citizens !
Good governance : it is not fashion, it is an efective tool to manage country development and to serve citizens in best way !
Good governance in a global context: it is a concept, policy and practice without boundaries !
Specific experience-China, introduce almost the same concept and policy : the role of government-to create harmomious society ! Adjustment of global concept to local Chinese conditions and development plans !
78
Public management: evolutions and changes
The old public management –bureacratic style, ineffective management
↓ The new public management: market-driven approach, effective
management, social disappointments ↓ Good governance: new syntesis and maturity - aimed to reach
sustainable growth and public sector efficiency , as well as citizens satisfaction and social welfare
79
Conclusions
The new, rational social ideas and concepts have led to innovative changes in government policies ;
Global impact: when new practices testified its efficiency, they became guidelines for changes in other countries ;
The Good Governance as a policy options is based on the concept for re-inventing government,real policy changes and number of good practices in most developed countries (UK, USA, Danmark,Nl and etc)
From the begining of 21 century we have intensive dissemination of good governance principles and practices all over the world !
Today, there is almost full concensus among social stakeholders: modern public management requires implementation of good governance principles
Good goivernance is a policy approach aimed to increase public sector efficiency and citizens satisfaction from having responsible and commited government.
Good governance in global context: require learning and sharing knowledge and practices among scientists, policymakers, practitioners, NGO-s from many countries
The role of youth meetings like this: learning today, implement tomorrow!
80
81
Thank you for your attention !