tb

Models of Public
Ad m i n istration Reform
:

Three well-known "models'of reform in public

adm

inistration and management

:

e These models are

I

. Reinventing government"-

2.

(Osborne and Caebler, I 993), Hammer and ChaffiPy, I993),and the Business process reengineering"

(doctrines -.-...* for Economic Cooperation anA DevG@ (OECD) countries 3. t{Ew public Management (Hood, I 995,1996; Kickert et al., I 997)

of

the QgeryZellen

Rei nventing Covern

ment"

(osborne and Gaebler, I g93),

#

According

.D

authors, the a "(r)evolutionary reinvention change process" that had happened

is

to

before in the prog ress ive and New Deal eras in the U.S. and has been occurring again in local governments
and elsewhere.

to map out "a radically new way of

doing business in the public sector" Ofne and Gaebler, I993: xviii).

Reinventing Gove rn ment was written

The

mode

"paradigm shift" from the New Deal paradigm of 1930s to 1960s toward

re p rese

nts a

bas ic,

model that they now

Consist of ten principles
#,

the

*entrepren,euridl government"
advocate.
6

Ten (10 ) PRINCIPLES Constituting a Work Agenda

*e

Principles related to the structure of the state 1 .The state will provide directly, through its statutory civil service, only the specific activities of state, i.e., the activities that involve the use of state power, or
that control the state's resources.

the other activities, auxiliary activities should be distinguished from the provision of social and scientific services. The former s hou ld be
2.Among
competitively outsourced to business enterprises, the with non governmental
:

on be will 3.Public administration recruited service, civil level high and professional trained and merit, to according and promoted

Principles related to civil

servlce

, __^-r based

well interest, public the or ethos according to the paid, ano motivated by a variety of incentives.

to committed be will officiars 4.pubric the to and ization organ state the of effectiveness way contemporarY a in applying while rule of law pu blic ucratic rea bu of princi'ples I the classica

of cost reduction the or efficiency to administration; services, public of quality the of increase and to the the to according services public while managing
ke$*gf iroOern public management'

tu

5. In a world where technological and social change is increasing ly fast, pu blic officia Is a re su pposed to be more autonomous in taking decisiofls, and, as a tradeoff, they, as well as the agencies that they manage or to which social and scientific services are outsourced, are supposed to be more accountable to the state organization and to society.

Principles related to management practices

the combination of

the classical mechanisms of administrative supervision auditing with the more recent methods of management by results, managed competition for the use of social accountabilitY

6. Increased accountability will be achieved through

Increased accountability will be additionally achieved through the adoption of a fu ll tra nspa rency policy, which involves extensive use of the Internet.
k,

7.

8. Increased effectiveness wi I be achieved in so far AS legal institutions are well adapted to society's
I

VA

committed to the ethos of public service.

ues and moods, and

as

public officials are

9. Increased efficiency wi I be assu red in so fa r as autonomous public officials are able to choose the means to achieve the accorded objectives, feel
proud for the results attained, and are accordingly
rewarded.
6

Increased efficiency will additionally be achieved Spread adoption of information

.Most entrepreneurial governments promote

Competition between service providers.

.They empower citizens by pushing control out of the bureaucracy, into the community.

.They measure the

agencies, regulations.

performance

of

their
a

.They redefi ne their clients as customers offer them choices...

nd
6

.They prevent problems before they emerge, rath e r than simply offeri ng services afterwa rd.

.They put their energies into not simply

spending it.
t@

.They decentralize authority,

pa

embracing

rticipato ry ma nagement.

They prefer market ' mechanisms to

bureaucratic mechanisms.

simply on providing
and voluntary-into
action

on

catalyzi

ng

all

1993: 19-20).
l_-i:l:':":rilr':.

*BPR" Business Or
Process Reengineeri ng

Reengi neering

r (Hammer and ChamFY, I 993),

fundamental rethinking and radical redesign of businesJ processes to achieve dramatic improvements in

Reengineering

or

*BPR" ,,iS thc

performance, such
service and speed.
L

critical contemporafi measures of

as cost, quality

It means tossin g Aside Old system and starting over, of "going back to the
beginning and inventing

a better way

MODELS OF PUBLIC ADMINISTRATION

REFORM

fi

Apart by the 19th century pri nciples of the division of labor (Hammr, as cited by Fowle[1997: 36-37). According to Fowler; its many features include the following resu lts of the desired cha ng"t
:

skilled, multi-functional jobs. (2) The stages in a process are performed in their
natu ra I orden

1)

Sepa rate, sim

ple tasks a re

com

bined into

(3) Work is performed where it is best done-some

parts of the process may thus be out-sourced, 4) The volume of checki ng and control of separate

total processes, the nature management methods, kvalues and beliefs.

(5) There is

compatibility between of jobs and structur, and the organization's

(6) IT is recognized and exploited as offering many opportunities for the redesign of the work systems and the provision of information to
rp

enhance devolved decision-making.

{

(7) Processes may have multiple versions to

(8)
kr

and hierarchies organ izational structures are flattened'

Managerial

Rewards are given for the achievement of results, not simply for,activity.
(

(9)

Gr

departments) change from functional units to become process (often "case") teams.
single contact with the organization.
(

10) Work units

(i.e

.,

Sections or

11) Customers have a

point of

The following attributes, as important mi lestones i n Ree ng i neeri ng a process,

(Halachffii, 1995: 331).

1) evaluation of whether a process is mission of the necess dry, given the

(

organ ization;

and procedures to start with a clean slate;

cross- functional Perspective;

(2) breaking away from traditional ways

(3) looking at business processes from a

(4) searching radical improvements using

the power of information technologY;
ffie

(5) reduction and elimination of paper

work and documentation;

custome[ the consumer or the client based on their needs and preferences

on processes and outcomes; and (7) focusing on

(6)
focusing

their the
ft

?,,

New Public Management

Or NPIfi"
rt

(Kickert, I 997 733)

ruHW
G;

Fuhlic Manf;IHement

ri

A management phllosophy used by gouernments since the 198SE to modernfge fhe pu&ffc secfer. New public rnanaseilnent is a hroad and vefy csnTlplex term u'sed to describe the wave sf puhlic sector reforms throughout the world since the L380s" The raain hypothesis in the NpM-reforil'n wave is that r?Tor"e mmrf<ef orfe'ntaffon In fhe public sector will lead to areater cost-efficiencv for souernntenfs" truithaut having negative sj{g effects on other objectlves a nd considerations"

PM: Cnnceptuel Bases

ff'r

Started by develnped Eountries two d:ecades ago because of the faiture of traditional pu:hlic administration. {i.e"
Weber.ian

typesl'pu

The task uras to put the

blic sector more

ma rket*

to
G

ol'iented and prlvate*sector sriented. Its focus is Ehifted frsrn traditi*na[ public admlnlstratisn

trsliz,ed Jnontrgemenf within public services, rncres"$ed rJse of rntrrl{ets and rormpefffforrs in the
decen

public

ffta nagemefit, wh

ich puts ernphasis on

provision of puh*lic services and fncressed emphssis ol'I perfon?'? sncer oufpufs and rustolrler s#entsffon {Larhl, lggg).

PM: fiuildlng Pr'[nciples

ah

an ernphasis on hands*on professisna[ management ski ls for active, visihle, discretisna]'y csntrsl of organizations {freedonr to manage}

explicit standards and measures of perfonnance through clarificaticn of goals, targets anU indicatarE nf success a shift frsm the use of input controls and hureaucnatic procedures to rules nelying on output contrnNs measured hy quantitatiue performa nce indicators
G

frcm unified management systerns to disaggresatian or decentralization of units in the public

a shift

sector

NPM is "active control

organizations
man agers

(Australia, Sweden) by loosening up constraints on their discretion, but \\ Make managers elsewhere it is
compete in the market (Kettl, 1997:
manag

discretionarY power" (Hood, 1996: 268). "f et managers manage!" is one NPM slogan in some countries

wielding

of public by visible top

el" by forcing them to

NPM is "shorthand for

&.,

adrninistrative doctri nes" in the reform agenda of several OECD countries starting in the 1970s. ,6p4fii,r,r"r",*t, p/.,
frnnnruo CbtHr4TVo "t

a group of

public management" had emerged, with eight characteristic "trends" (According the OECD (Kickert,

"A new paradigm for

to

M: I ilharacter Trends
E" Strengthening steeriilS functlans of the central
ff:
"tf,

goverilrTtent

j}.
2

It

ilevolving authority, providing fiexi bility ilnsuring perforrnance, control, aCCou ntability lrnproving the management of human resources
S pti

rrrlzins information tech nology Developing competition and choice

lmpravinH the quality af regutration

qJ.

Providing responsive service

NPM reforms shift the emPhasis from traditional public administration to public
management,
Key Elements

within public services Ex, Creation of autonomous agencies and devo ution of budgets and fi nancial control),

1. Various forms of decentralizing management(

2. Increasing use of markets and competition n the provision of public services Ex. Contracting out a nd other market-type
mechanisms), and

on performance, outputs and

.r;

NPM reforms

d,,

political factors,

combination

of economic, socidl ,
technological

driven by

and

triggered the quest for efficiency and for ways to cut the cost of
deliveri ng pu blic services

NPM route has been the experience of economic and fiscal crises, which

_ c

context of structural adi ustment prog ra m mes,

manag"rent is driven more by external pressares and have taken place in the
and

reforms

Most of developing

in

countries, public administration

r;

Other drivers of NPM - type reforms include the ascendancy of neoliberal ideas from the late l97os, the development of information technology, and the growth and use of international ' management consultants as advisors on reforms,

emphasis on good governance,

Additional factors, in the case of developing countris, include lending conditionalities and the increasing

Elemenfs of NPM
1. Management
services,
decentra lization within public

include autonomous hospitals in Ghana, zimbabwe and Sri Lanka, as well as the hiving-off of the customs and excise, and internal revenue departments to form executive agencies in Ghana and Uganda.
#

2. Downsizing,

Ex.

transport, agriculture

nd

user

The adoption of these NpM practices seems to have been beneficial in Some cases Ex. cost Savings in contracting out road maintenance t there are both potential for

and real Iimitations to applying some

elements in cri sis states.,

The
$

and other problems whose persistence may be binding constraints on implementation.

limited experience of NPM in such states su ggests that there are institutional

*UPM iln ths Fhiillppines

{

lUpM

is not a new concept in the philipplnes. Having

experienced suf;cessive economic and fiscal crises of its

own, the philippines hes to continuously laok for a lternatiue models of Soverna nce. rq Fhfl, which
ernphasizes efficieilcy and effectiveness at the least cost
6

passihle, proved

to be an attractive anternative to
"

traditiona I public adrn inlstratlon

Fscfsrs fonfrf&uffng fo ffPl[rl's Gror*rfft fn ffte Fhflfpprffies :

f
1. tnfluence sf Technical Consultants
The rale sf teehnical csn$ultants in the formulation of r:efsrm i:nteruentions
Xed

to the intrsduction of Eome NPM

concepts in the Fhilippines. As Greer {3.994} puts it, NPM

reform$ have been globalized hy change agents, uuhich include

6

larffe internatianal management csnsultants, accountaficy

firrns and international ttnanclal institutions.

?. sevelapment in Information Technslosy

f
lT has provided necessary tools and structures to meke workable managerlal refofms in the puhlic sectsr possihle {Greer, 1994 as cited in Labr3}.Todarg, many of the fUpM inspired reforrn initiatives in the Fhilipplnes are hastened by the preseilce uf lT irufrastructures.

fr

3. Mandatory structural adjustment prssrarns of mLtttilateraI lending instituti'nns like the World Baftk, AnS and th* lnternati*nal Manetary Fund"
"Going first ta the IMF and then to the World Bank rneant accepting stabilizatian *nd structural adjustment packages with their accompanying canditronrlfries in order" to shtain credits and debt reseheduting from creditor banks and rnultllateral institutions. Policy-hased lending by multilateral institutions was used a5 an instrument to encourase crisis states to ernbark 8n reforrHs that were prs-ffifrrkef snd propnuote secfo r." {Lfrbri}

G';

For ExamPle:

and sewerage System tM\Jds$I, Bn NPhd inspired reforlrl ffi*asure, u$as tid up to a *oan provided by nuultilateral agencies [ike the ADB. The Earne is true for the prlvatization of the National Power corporation
f,'*'

The privatizatiun of the Metrapolitan Waterworks

{NAPOCOR}.

Other Projects
Naga City's E-Governance Projects The most successful project in local government. It gives indiscri minate access to information on city policis, programs and operatlons via the internet,

Outsourcing of services Traditionally provided by LTO (e.g. application for and renewa! of drivers
Licenses

Mail$amayail ilVlutrt, Hindi MaffiIaYa Na FragraffiI

c

A cnre principle of NpM ls custonler*srie,ntatioil, uuhich involues an increasing mphasis on Improving the quality of services, settlng standards for.,quallty, and resp*nding ts custsffier's srientatisn" While tradltionel Fublic administration regards citizens as sErvice receivers r,uho are unilaterally glven lirnited choices by governmert, JVpr,bf regcrds cifrrens os cusfsrmers wfto Jtmue ntufffple cfior'ces, sinutrsr fs #Ie slferffisffue$ truffffsbtre ifi ffny

ffigrkef.

Tc Summarie*...

The central feature of NPM "is the attempt to lntr*duce or simulate, with*n those sections of the public service that are not privatized, the perfcrrnailce incentives and the disciplines that exist in a rnarkef enuironrnent" (hnoore, et al.o 1g$4}

Fur"thtfft,oFB, insights from developed ma rket econom ies, urh [ch successfully refof med their hu rea ucracy using N pM principles inspired Fhilipplne ph/l refarrn Bovernment officia ls ta initiate similar N efforts in the csuntry.

Alew Public Admi nistration f

Or
(

t'NPArr

ADFITT{ ISTRATIONU

I5T5

ADil{IiluI.sTRATIftru,......,.

OIU T'HE. ruMEf FUBLIC

THE PROCEEDINGS WERE PUBLISHED A5 A 397T, TITLED TfrWrtRD rt NEYIT P{JflLTC ADMINISTR fTION: TtlE MINNOWERffitr

MOK IN

PERStriTTVE

TT{E TSffi.JS

#F

TT{E f{EW PUBtIf, AilMIHISTRATION WAS

ETSilqCHNHM TO TffiMTfUE SUCH T&ADITIONAL

PHTH*ME!\IA AS HFFTf,IHFItr#f" ETTT VEFIESS, BUnGffI$'lGu AH B AmF{.{hlI$TH&TruE TECH hIIQUES.

TI{E QLjHSTISNS IT RAISED SHALT kU',IrH VALUHS, ETHICS, TI{E DEVELOPMENT OF THH IhISIVIDUAL MHMfiEH. IN THE ORGAhI{ZATION, THE RELATIQFN ffF THE CLIEF{T WITH THE BUREAUCRACY, AND THE BROAD pR*BLEMS *r Uffi.HAf{{SM, ffiffifu#LftGy, ANS sfiCIAL CONFLIC]8.

rr rar rrr,, *!*xx

J'.iat

*ai*r

(t$gl,..{:l FRrDrRIcKsoil GEfiRGE rr&MpLE, ffi r*R Yffi EN*EH&F fi r SfiCIAL EQUryV &S, qUffi fi [ry- I p*, *

ffiq #

*m**llrrirn*fruE *IT *ry?_$lffiL IS ur-rcumffiruT oN ryryu9llf, H[ livRSTr TH&r

Eil{D DEffiryry SEVELfrP Tfr ABLE BE i* srml{ iRrerus AND MrA_sytrryEFurrY ry?. I?_-. ftil{ r ilr mrxryffi rrffi uru$uilsT&rum ryffE*tfrf,rs

ryryffiSHFf lg$Fil nEcffiI*tu rcffiKtrufr

r

SCH.ffLAH5 MUffihIG THAT PERT** EF4PHASIZE& THE f{EED TO EXPLORE ALTERNATIVES TO THE THADffIONAL TOP-DOWN HIERJERCHICAL MODEL OF zuREAUCRATIC ORGANIZATION. INDICTING THE OLD MODEL FOR IT5 *tsJEf,T{FTC&TI*hI AT{& SEPERSONAHTATT*hI SF *Rffitr{,IAATI,##qAL Mf,HBEHS ANn CALIIFIG FOR M*SEIs

SUTLT] RffUhID OPHhIHE$SU TRUST' ANB H*T{HST COMMUNICAT{OhI5.

M MAIIU. AfrREEMEIUTS OF THE [\[EW PUBLTC

ADIIJI}ruXSTRATIfiil{:

PU$LII A$HIIItrISTF&ISRS AHD PUBLIC AGENCIffi ffiE

NOT AF*D CANruOT BE EITHER NEUTRAL OR OBJEfrTIVE.

2) TECHNOLOGY I5 OFTEN DEHUT\4ANIZING. 3) tstlHEAt.-$cRATIC HE.ERARf,HY I5 #mEFI IFtrEffiETrIVE

,. t,,.,-..,-' : : I a.a::.:.,

A5 AN ORGAFIIZATIOruAL STHATE T.

4l tsuREeffi&,efrIEs TENS TfiWARD GfieL ilffipLACEF4En$r

AruS:
''::ll :

Sl]Rhft$ L.
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1

ei**-.{lit

,*.a*;

sl CffiffiPERATI#l$o C#I$SENSUS, AlSil SET4SCRAfiI -_ AilF,III\&E5TRA?gON ARE T4frRE LilKEI-Y TT'*AIS THE ffiffiPLE
EXERTISE SF ASF4TTTS.TRATSVE ru?HORtrW

T* RESLILT TN

IT5 #F FIJBLTC ADMEIUISTRATT*ryryUry BE LMXC' BUTLT Sru P*5rffiHAV- ISHAL AI.*N Pfi5TF#5TTSVT5T ggTffi F":$t 1E M 0 RE ffi E F,ir#cRArllr "Yg$.t H.ESP*ruSXUE Tfi C${A[\IG$*fi SSTEAI* Ef,ftryGF4lfrN pmilffic*L CxRCUMsTANCEs" gffienlx\*r 3S7t}

ffiil

THH ffiVEffi&.IffiIruG SFTftTT *F THH HHMf PUffiLIf, ADMINISTRATIOru WAS A MORAL TO!qEI

THH

*tr&,IIffi".f,#,A

CAhI ffiH UIf;WED AS E

CALL F*ft" [[\IffifiPENMEruCE FRftM BOTH

roLm{ffil

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poLlTICs 0F BUREAUCRACY) Ar{D
"ffiCHffiCAt
frATHER THAht
MAhTAGEMEFIT {srruCE MAf\I-AGEF'IEIUT ALUJAYS HAD BEEftJ EMPHATICALLY

ruftftFIATM Iht ApPRGACH).

ff, rcffi*&8& d f,El,f,iFd/8["If
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H. GEORGE F RESfrRIf,Kffi

ffifiry

1S

fl]

"

THE

NETfS FUBLXC ANMENTSTRATIfiN, h$EVER

l-S/E$ UF T#

ETs EMBTTT#T\*s #FRFdOL|-JTXGNStrHG THE DT5f,1FLT[\NE. F$EVERTHEE*EssN THE M#VEMEffT HAS E LESTI]SG gffiFAf,T trhI FUtsLXfi &DFI*Th*T5TH4T3#N Tffi,THAT THEY ruUSGE$ FuitsLIfr AD F4IN IsrRATroNIqrE xftrg H"ECo tusIDERIr\$fi THEIR TRASTTX#I\#AL SruTELIECTUAL TTES IJ.I/ITH BfiTI'{ TLITTC&L SCIENCE Aft&U T,IAIrtrAGEMEffi, AND INTO COruTEMFLATENG TFIE PROSPECTS OF ACADEMTC AUTOftIOMY.
T

HOWEI/ER, THEY LATER IIUSPIRE THE DEVELOPMEIUT OF A NEW APPRSACHES IIU PUtsUC ADTFIruTSTRATION SUCH A5 THE ffiEkV PUBLIC SERVIIE AFnm THE roS"fM.sDERIU PUBUC
ADMIFIISTRATTOF&.

hvww.Siryfi4}$r.(xltlt

11

THE I\fiEW PUtsLgC ADM[NI5TRA?Efiru ruEVER LIVES IJF Tfi XYs &F,{BSTXOI\*5 fiFREVfrLUTTfrTqIffffifi THE STsfl[FtTF*E IUEVERTHELESS, THE M*VEMEIUT HAF A LffiTTF*fi tr,ffiFACT *F$ pusLEC &nMgF*ISTRArWr!$ Ntlfi THAT Th*EY tr$UffGEm PUBLIC ASF*TI\IISTRATE#[UITil'5 ENTO RECff IU5{trERING THESR TRADTTIOruAL NNTELLEflTUAL TIES WtrTH BOTH PSLTTECAL sCIENCE AF*D I4AIUAGEMEffi, AND INTO COIUTEMPLATING HfiWtsdER, THPf LATER TNSPIRE THE NEVELOFMENT OF A ruEW APPR#AfiHE5 gru P#BLIC AilII{IIUTSTRATIOru sUfrH A5 THE NEW PUBLTC SERVECE AftID THE POSTMODERN FUBLIC ANMINISTRATIOFI.

\,rddical way 6 oing business:in the ublic sector

.N'PM :ril$eh,infy

&Gt.a

\ revolutionary lange process

an in:stfument of initl'at a,nd ,f us,taining'social " change:ih',ord'er to b.ri n, down fiu.stration among people 4 ASPECTS .Change
,

Entrepreneurial over:nmena"

;.

'1omo e cdmpetition et, Servi6grproviders

.Relevance ,.Eqr[i:ty., Fai,rness & Justi .Values

impowei citizens bV USh,ingcontrdl out 6f re b,ur.e1u:racy, into )mmunity

.,leasure performance
F

.No greater emphasis o morals and ethics amot .Calls for client loyalty
', a t ' .:i

' : t'

lt ''
'

.:

their agencies

.Ci ti z .par,ti -en:

c i pat

ib n'i n

IPUTS but on UTCOMES,

administration neighborhood control

bureaucracy and plurali

'r.i;.j r:r.:.::.1,'=-+,

r::1 i

r;:. ::i..i:

i::i:: '

:l::!,],i:.

' ,

i4ui '
,dnid

'ii.l'il,,i:r