Public Management Reform: A Comparative Analysis - New Public Management, Governance, and the Neo-Weberian State PDF
Preview Public Management Reform: A Comparative Analysis - New Public Management, Governance, and the Neo-Weberian State
Public Management Reform This page intentionally left blank Public Management Reform A Comparative Analysis—New Public Management, Governance, and the Neo-Weberian State THIRD EDITION Christopher Pollitt and Geert Bouckaert 1 3 GreatClarendonStreet,OxfordOX26DP OxfordUniversityPressisadepartmentoftheUniversityofOxford. ItfurtherstheUniversity’sobjectiveofexcellenceinresearch,scholarship, andeducationbypublishingworldwidein Oxford NewYork Auckland CapeTown DaresSalaam HongKong Karachi KualaLumpur Madrid Melbourne MexicoCity Nairobi NewDelhi Shanghai Taipei Toronto Withofficesin Argentina Austria Brazil Chile CzechRepublic France Greece Guatemala Hungary Italy Japan Poland Portugal Singapore SouthKorea Switzerland Thailand Turkey Ukraine Vietnam OxfordisaregisteredtrademarkofOxfordUniversityPress intheUKandincertainothercountries PublishedintheUnitedStates byOxfordUniversityPressInc.,NewYork #ChristopherPollittandGeertBouckaert,2011 Themoralrightsoftheauthorshavebeenasserted DatabaserightOxfordUniversityPress(maker) Firstpublished2000 Secondeditionpublished2004 Thirdeditionpublished2011 Allrightsreserved.Nopartofthispublicationmaybereproduced, storedinaretrievalsystem,ortransmitted,inanyformorbyanymeans, withoutthepriorpermissioninwritingofOxfordUniversityPress, orasexpresslypermittedbylaw,orundertermsagreedwiththeappropriate reprographicsrightsorganization.Enquiriesconcerningreproduction outsidethescopeoftheaboveshouldbesenttotheRightsDepartment, OxfordUniversityPress,attheaddressabove Youmustnotcirculatethisbookinanyotherbindingorcover andyoumustimposethesameconditiononanyacquirer BritishLibraryCataloguinginPublicationData Dataavailable LibraryofCongressCataloginginPublicationData Dataavailable TypesetbySPIPublisherServices,Pondicherry,India PrintedinGreatBritain onacid-freepaperby MPGBooksGroup,BodminandKing’sLynn ISBN 978–0–19–959508–2(Hbk) ISBN 978–0–19–959509–9(Pbk) 1 3 5 7 9 10 8 6 4 2 Forourparents, Freda,John,Leen,andMichel This page intentionally left blank n PREFACE TO THE THIRD EDITION Togointoathirdeditionisquiteaseriousstep.Asecondeditionbetokensamodestdegree ofsuccessinattractingreaderswhohopetofindsomethingusefulorinterestingbetween thecovers.Butathirdeditionbeginstofeellikeaprocessofinstitutionalization—asifone hasnowbecomeoneofthestatuesintheparkofpublicmanagementandadministration. Unlikestatues,however,ourbookwillnotstandstill.Itevolvesalmostdaily,sometimes inaccordancewithourwishesandatothertimesinatiresomeorannoyingway.Infact thisthirdedition,whileinhabitingasimilarbroadframeworkofchaptersandappendices, ishugelydifferentfromthesecond.Somechaptersarecompletelynew,andalltheothers have undergone extensive rewriting and updating. In the remainder of this preface we wouldliketoexplainthelogicofthisoverhaul. Scope Our subject—comparative management reform—has grown tremendously over the past coupleofdecades.Ithaschangedsignificantlyevensincethefirsteditionofthisbookwas beingwritten,in1998–9.Theliteraturehasexpandedfastandthediversityofperspectives and techniques has also increased. We are delighted that the first two editions of Public ManagementReform: AComparative Analysis playedtheirpart inthisgrowth.Ithasbeen oneofthemostwidelycitedpublications,andwehopeandintendthatthisveryexten- sivelychangedthirdeditionwillcontinuetostimulateandinform. Wehavestucktothesametwelvecountries(plustheEUCommission)asinthesecond edition.Thepracticalreasonsforthusrestrictingourfocuswereseveral.Tobeginwith,a dozenstatesisalreadyalottohandle,inthesenseofbecomingfamiliarwiththedetailsof their reform histories. Further, in order to minimize misunderstandings and superficial interpretations, we took an early decision not to include stateswhich neither of ushad recentlyvisited.Additionally,inonlytwocaseswereneitherofusatleastminimallyable tounderstandthemother-tongue:ItalyandSweden.InthecaseofItalywewerefortunate in obtaining the detailed help of a leading Italian scholar, Eduardo Ongaro (see, for example, Ongaro, 2009). In the case of Sweden, so many documents are published in English as well as Swedish that we felt somewhat reassured. In every country we also contactedresidentscholarswhogenerouslyhelpeduscheckourfactsandimpressions(see Acknowledgements for details). For these various reasons we arrived at our final list of Australia,Belgium,Canada,Finland,France,Germany,Italy,theNetherlands,NewZeal- and, Sweden, the United Kingdom, the United States of America, and the European Commission.Withconsiderableregret,weresistedthetemptinginvitationsfromvarious partiestoadd(interalia)Brazil,Denmark,Estonia,Japan,andNorwaytoourportfolio. viii PREFACETO THETHIRD EDITION Choosing a time period also has implications. As in previous editions, we started the clock in 1980. That made reasonable sense, insofar as the first waves of New Public Management-type reforms began to appear internationally in the early and mid 1980s. Itdoesmean,however,thatwehaveahugeadditionalquantityofmorerecentmaterial, all to be fitted in to roughly the same number of pages as before. Whereas the second editioncoveredroughlytwenty-threeyearsofreform,thiseditioncoverstwenty-nine— andtheadditionalsixyearshavebeenratherbusy!Ahigherdegreeofselectivityhasbeen unavoidable. Inanutshell,therefore,thethirdeditionholdstothesamegeographicalscopeasthe secondedition,buthastocovermuchmorematerialbecauseofthelongerperiodcovered andthemarkedgrowthinreformactivityduringthatperiod. Changes in chapters Thefirstchapterisentirelynew,anddidnotexistinthefirsttwoeditions.Itspurposeis twofold.First,itindicatesthescopeofthebook:thenatureofthesubjectmatterandhow broadly and deeply we will cover it. Second, it introduces readers to some of the main recentdebatesinthefield.Thesewillbesummarizedhere,andthencontinuallypickedup inthelaterchapters,asweproceed.Theintentionistogiveastrongflavourofwhatour subjectisabout—whatgetsscholars(andoftenpractitioners)excited,andwherethemain argumentsandcontroversiescurrentlylie.Italsointroducesthreemajormodelsorvisions ofwhatthesubstanceofpublicmanagementreformhasbeen(or,insomecases,should be).These three modelsare then pickedup atvarious points throughout therest ofthe book. Chapter 2 introduces a model of the process of public management reform which is basically similar to that in previous editions. However, experiences using the book for teachingstudentshaveledustoreviseourexplanationsofwhatthemodeldoesanddoes notdo.Itsadvantagesandlimitationsshouldnowbesignificantlyclearer.Oneparticularly important development of the original material is the inclusion of a discussion relating what is basically a model of the process of change in one country to the increasingly importantinternationaldimensionofmanagementreform. TherevisionofChapter3(‘Manyhouses:typesofpolitico-administrativeregime’)has benefitedconsiderablyfromtherapidgrowthincomparativestudiesoverthepastdecade. Whilstweseenoneedtoalterourlistofkeyfactors,thereisnowmuchmorescholarlyand empirical back-up for this general approach, and we cite a good deal of it. Several new sectionshavealsobeeninserted. Chapter4(‘Trajectoriesofmodernizationandreform’)hasbeenveryextensivelyrewrit- ten. There are two principal reasons for this. First, there is simply an awful lot of new data—recentreformattempts—tobeaddedandconsidered.Second,thescholarlydebate abouttrajectories,trends,andpatternshasbecometheoreticallyandconceptuallymore sophisticatedsincethepreviousedition.Wehaveneededtoreferto,andengagewith,that debate. PREFACETO THE THIRDEDITION ix Chapter 5 (‘Results: through a glass darkly’) is another section of the book that has requiredwholesalerevision.Sincethefirsteditionwaswritteninthelate1990stherehas beenanexplosionofinternationalindicesand‘leaguetables’pertainingtovariousaspects of governance (see, e.g. Dixon et al., 2008; Pollitt, 2010b). This growth industry has spawned both new data and new problems and controversies. We try to report some of themostrelevantdataand(necessarilybriefly)commentonsomeofthecontroversies. Chapter6(‘Politicsandmanagement’)wasalsoalarge-scalerewrite.Thelastfewyears haveseenanumberofilluminatingstudiesoftheinterfacebetweentoppublicservants andpoliticians(e.g.HoodandLodge,2006;PetersandPierre,2004)andwehadtocatch up on these. The net result has been a refinement and elaboration of the conceptual frameworkweemployedintheearliereditions. Chapter7(‘Trade-offs,limits,dilemmas,contradictions,andparadoxes’)islargelynew. Whilstwehavenotabandonedtheinsightsinthepreviousedition,wearenowabletoset themwithinamorecoherentdiscussionofdevelopingpatternsovertime(Pollitt,2008).In doing this we have benefited from another recent academic growth area—the debates aroundpathdependencyandcycles. In Chapter 8 (‘Reflections’) we take the opportunity to look back at the large canvas constitutedbythesevenearlierchapters.LikeChapter1,thisisanentirelynewchapter,in which we decided to start afresh rather than modify the previous material. Readers will makeuptheirownmindsconcerningthequalityofthesereflections,but,forourpart,we believe that the mixture or balance, though not utterly transformed since the second edition,doesreflectsomesignificantrecentlearningbyus. Inconclusion,wewouldsaythat—althoughthiswasnotourmainaimatthestart—the changessincethesecondeditionhavebeensufficientlyextensivethatscholarswhoread thatearlierworkcarefullywouldneverthelessfindthisthirdeditionofsufficientinterestto workthroughtotheend.Formoststudents,ofcourse,itwillbefirsttimeround,andwe hopethatwehavelearnedenoughfromthosewhoworkedwithpreviouseditionstohave furtherclarifiedthepresentationofsomeofthekeyissues,whileretainingtheoverviews andfactualsummariesthatsomanyreadershavetoldusareuseful.
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