From Bureaucracy to Public Management: The Administrative Culture of the Government of Canada

193 Pages·1999·9.13 MB·English

by  O. P. Dwivedi

From Bureaucracy
to Public Management
This page intentionally left blank
From Bureaucracy
to Public Management
THE ADMINISTRATIVE CULTURE
OF THE GOVERNMENT OF CANADA
O.P. Dwivedi
& James Iain Gow
broadview press
IPAC IAPC
The Institute of _ L'lnstitut d'administration
Public Administration of Canada publique du Canada
Copyright © 1999 O. P. Dwivedi and James Iain Gow
All rights reserved. The use of this publication reproduced, transmitted in any form or by any
means, electronic, mechanical, photocopying, recording, or otherwise, or stored in a retrieval
system, without prior written consent of the publisher — or in the case of photocopying, a
licence from CANCOPY (Canadian Copyright Licensing Agency) One Yonge Street, Suite 1900,
Toronto, Ontario M5E IE5 — is an infringement of the copyright law.
CANADIAN CATALOGUING IN PUBLICATION DATA
Main entry under title:
Dwivedi, O. P., 1937-
From bureaucracy to public management
ISBN I-55III-27I-X
I. Civil service — Canada. 2. Political culture — Canada
I. Gow, Iain. II. Institute of Public Administration of Canada
III. Title
JLIo\08.D88 1999 3526'3'097I C99-930990-0
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This book is a joint publication of the Institute of Public Administration and Broadview Press.
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Contents
List of Tables II
Preface 15
ONE INTRODUCTION:
ADMINISTRATIVE CULTURE AND VALUES
1 Culture as Manifest in Organizations 18
Culture in the Anthropological Sense 18
Organizational Culture and Corporate Culture 19
Administrative Culture 20
2 The Place of Values 22
The Place of Values in Public Administration 24
3 How to Study Values in Public Administration 26
Two Typologies of Values in Public Administration 26
The Bases for Determining Fundamental
Values: the Deontological Approach
and the Teleological Approach 28
The Context of Ethical Behaviour 30
4 Conclusion 33
5
FROM BUREAUCRACY TO PUBLIC MANAGEMENT
TWO THE SOURCES OF ADMINISTRATIVE
CULTURE IN CANADA
1 The Physical Environment 42
2 Social Values 43
3 Economic Culture 45
4 Political Culture 47
5 Internal Causes: Workplace 54
Sources of Administrative Culture 55
6 Foreign Sources of Influence
7 Conclusion 56
THREE THE FOUNDATIONS OF CANADIAN
ADMINISTRATIVE CULTURE
1 Constitutional Conventions and
Canadian Public Administration 63
The Rule of Law 64
Responsible Government and
Ministerial Responsibility 64
2 Classic Regime Values of
the Canadian Administration 66
Merit 67
Concept of Political Neutrality 71
Civil Service Anonymity and Secrecy 73
Public Service Accountability 75
Employees' Associations and
Collective Bargaining 79
3 Guardian Institutions 80
4 Conclusion 83
6
FROM BUREAUCRACY TO PUBLIC MANAGEMENT
FOUR THE ADMINISTRATIVE STATE IN CANADA:
THE WHITEHALL MODEL UNDER STRESS
1 The Advent of the Administrative State 89
2 The Administrative State in Canada 94
3 Administrative Discretion, the Rule
of Law, and Administrative Accountability 96
Judicial Control of Administrative Discretion 98
Legislative Surveillance of
Administrative Discretion 99
Political Accountability 100
Problems of Deficits and Cost Control 102
4 Politicization of the Administration:
From Above, From Below, and From Without 104
Politicization from Above 105
Politicization from Below: Collective Bargaining 107
Politicization from Without:
Representative Bureaucracy 108
5 Canadian Administrative Culture as Revealed by the
Growth of and Response to the Administrative State no
Elite Values no
Other Employees 113
6 Conclusion 115
7
FROM BUREAUCRACY TO PUBLIC MANAGEMENT
FIVE THE NEW PUBLIC MANAGEMENT
MOVEMENT COMES TO CANADA
1 Genesis and Lineage of the New Public Management 125
2 New Public Management Movement Comes to Canada 131
The Glassco Report 131
PPBS 132
Programme Evaluation and Comprehensive Auditing 133
Creation of a Management Culture:
The Management Category and coso 134
Operational Decentralization: IMAA and SOA'S 136
Canadian Centre for Management Development 138
3 PS 2000: Apotheosis of the Canadian
Public Management Movement 140
4 Restructuring and Programme Review 146
5 Canadian Administrative Culture in the
Wake of New Public Management Reforms 147
8
FROM BUREAUCRACY TO PUBLIC MANAGEMENT
SIX CANADIAN ADMINISTRATIVE CULTURE
BETWEEN PAST AND PRESENT
1 The Findings of Our Study 161
2 A Deontological Appraisal of the New Public
Management 168
3 A Teleological Approach:
Between the Desirable and the Desired 170
Need for Budget Restraint 172
Reducing Bureaucracy 172
Accent on Results 172
Service to the Public 173
Decentralization and Devolution 173
Contracting Out 174
Performance Pay 174
Accountability 175
4 Lessons Drawn from This Study 178
5 Conclusion 180
Index 187
9