China-Europe public management中欧公共管理

PublicManagementinaMixedEconomyChina-EuropeManagementTeachersProgrammeHEC,JouyenJosasJuly10,2002,LucaG.Brusati,Ph.D.(luca.brusatiuni-bocconi.it)DirectorforInternationalRelationsDepartmentofPublic,HealthcareandNonprofitManagementBocconiUniversitySchoolofManagement,“PublicManagementinaMixedEconomy”ChinaEuropeMTP,LucaBrusati20022,Overview,Whatdowemeanby“publicmanagement”?TheartandscienceofdealingwithtransitionsImplicationsandchallengesforpublicsectormanagers,Whatdowemeanby“publicmanagement”?,“PublicManagementinaMixedEconomy”ChinaEuropeMTP,LucaBrusati20024,Atentativedefinition(1),“Publicmanagement”=Themanagementofsocietalresourcestoachieveresultsinthepublicinterest?,“PublicManagementinaMixedEconomy”ChinaEuropeMTP,LucaBrusati20025,Atentativedefinition(2),Whatismanagement?Whatresourcesareinvolved?Howisthepublicinterestdefined?Whomanages?Wheredoesmanagementtakeplace?,“PublicManagementinaMixedEconomy”ChinaEuropeMTP,LucaBrusati20026,Whatismanagement?,Workingdefinition:Setofrelateddecision-makingandimplementationprocessesthroughwhichanorganizationisledtowardstheachievementofitsobjectives,“PublicManagementinaMixedEconomy”ChinaEuropeMTP,LucaBrusati20027,Whatresourcesareinvolved?,Tangibleresources(e.g.assets,money,people)Intangibleresources(e.g.power,credibility,legitimacy)“announcementeffect”“moralsuasion”,“PublicManagementinaMixedEconomy”ChinaEuropeMTP,LucaBrusati20028,Howisthepublicinterestdefined?(1),Theoryofthecommongood,Drawingthebordersofthepublicinterestisnecessarilyapoliticalresponsibility,BothhavelimitationsTheydonotprovideclearmanagerialguidance,Theoryofmajority,“PublicManagementinaMixedEconomy”ChinaEuropeMTP,LucaBrusati20029,Howisthepublicinterestdefined?(2),Adequategovernancepatternsmustbeinplace,SetsofrulesmustbeagreedupontodecidewhetheranactionisinthepublicinterestCriteriafordetermingthecompositionofdifferentbodies(e.g.,Parliament,BoardofDirectors)Rightsanddutiesofeachbodyvis-vistheothersInternaldecision-makingproceduresPrinciplesfortheinvolvementofadditionalstakeholders,“PublicManagementinaMixedEconomy”ChinaEuropeMTP,LucaBrusati200210,Whomanages?,WeberianbureaucracyPoliticians(elected)Tenuredcivilservants(hired),SpoilssystemPoliticians(elected)Short-termcivilservants(appointed)Tenuredcivilservants(hired),Aclear-cutdivisionofresponsibilitiesisutopia,“PublicManagementinaMixedEconomy”ChinaEuropeMTP,LucaBrusati200211,Wheredoesmanagementtakeplace?(1),JURISDICTIONSPoliticalorganizationofthepopulationofagivengeographicalarea,e.g.municipality,province,region,state(andtheirbodies),AGENCIESInstrumentalentitiesestablishedbyajurisdiction,e.g.hospital,museum,transitauthority,centralbank,regulatorycommission,“PublicManagementinaMixedEconomy”ChinaEuropeMTP,LucaBrusati200212,Wheredoesmanagementtakeplace?(2),INTRA-ORGANIZATIONALMANAGEMENTCo-ordinationofinputsforthedirectdeliveryofaserviceINTER-ORGANIZATIONALMANAGEMENTCo-ordinationofthebehaviorsofdifferentstakeholdersfortheindirectsatisfactionofaneed,“PublicManagementinaMixedEconomy”ChinaEuropeMTP,LucaBrusati200213,Keydifferencesbetweenpublicandprivatemanagement,Formalregulationofalldecision-makingandimplementationproceduresLackofrealmarketpricesfortheservicesdeliveredDifferentpatternsofperformancemeasurementAdhocaccountingprinciplesandtoolsPoorincentivestowardsquality(e.g.tennisclasses),“PublicManagementinaMixedEconomy”ChinaEuropeMTP,LucaBrusati200214,Efficiencyandeffectiveness(1),Toachievegoodresultswithlimitedresourcesthereisadoubleneedfor:Efficiency=“doingthingsright”Effectiveness=“doingtherightthings”inbothdecision-makingandimplementationprocesseswithineachorganizationconcernedwiththedeliveryofservicesinthepublicinterest,“PublicManagementinaMixedEconomy”ChinaEuropeMTP,LucaBrusati200215,Efficiencyandeffectiveness(2),Inputs(quantityandqualityoftangibleandintangibleresourcesused)EfficiencyOutputs(quantityandqualityofservicesdelivered)EffectivenessResults(impactoncitizensneeds),Theartandscienceofdealingwithtransitions,“PublicManagementinaMixedEconomy”ChinaEuropeMTP,LucaBrusati200217,Aconceptualpremise:publicfunctionsvs.publicservices,FUNCTIONUndertakingofthepoliticalresponsibilityforthesatisfactionofagivenneedSERVICECombinationoftheinputsneededtoensurethatsuitableoutputsaredeliveredtosatisfyagivenneed,“PublicManagementinaMixedEconomy”ChinaEuropeMTP,LucaBrusati200218,Publicmanagementintransition(1),Phase1(1800-1930):“MinimalState”Lawenforcement,Phase2(1930-1985):“WelfareState”Directprovisionofgoodsandservices,Phase3(1985-?):“EffectivenessState”Stimulitotheprovisionofgoodsandservices,“PublicManagementinaMixedEconomy”ChinaEuropeMTP,LucaBrusati200219,Publicmanagementintransition(2),“Firstgeneration”needs:publicgoods(e.g.defence,roads,lighting)“Secondgeneration”needs:“merit”goods(e.g.healthcare,education,housing)“Thirdgeneration”needs:effectivesteering(e.g.industrialcompetitiveness),“PublicManagementinaMixedEconomy”ChinaEuropeMTP,LucaBrusati200220,Publicmanagementintransition(3),Governmentas:,Phase1:Administrator,Phase2:Manufacturer,Phase3:Networkmanager,“PublicManagementinaMixedEconomy”ChinaEuropeMTP,LucaBrusati200221,Alternativesforservicedelivery,“PublicManagementinaMixedEconomy”ChinaEuropeMTP,LucaBrusati200222,IntroducecirculationrestrictionsandfinesStrengthenthePoliceDepartmentStrengthenandsubsidizetransitandtaxiservicesReducetheavailabilityoffreeorsubsidizedparkingIncreasegastaxes,roadtollsandVAToncarsFavouruseofbicyclesandcarpoolingCo-ordinatethetimingofdifferentservicesDesignsuitableurbandevelopmentplans(“zoning”),Anexample:dealingwithurbantraffic,“PublicManagementinaMixedEconomy”ChinaEuropeMTP,LucaBrusati200223,Publicmanagement,orhowtomakeacirclesquare?(1),SafetyandhealthconcernsEnvironmentalconcernsEconomicdevelopmentconcernsHorizontal,verticalandintergenerationalequityconcernsFiscalburdenconcernsAestheticalconcerns(!)Re-electionconcerns,“PublicManagementinaMixedEconomy”ChinaEuropeMTP,LucaBrusati200224,Publicmanagement,orhowtomakeacirclesquare?(2),Trade-offsbetweenshort-termandlong-termimpact(e.g.,parking,subwayconstruction)Trade-offsbetweenco-operationandcompetitionorcontestability(e.g.,transit)Trade-offsbetweenequityandefficiency(e.g.,peakloadpricing)Viciouscirclesand“Catch22s”(e.g.,restrictionstothecirculationofprivatecars,timingofgarbageremoval),Implicationsandchallengesforpublicsectormanagers,“PublicManagementinaMixedEconomy”ChinaEuropeMTP,LucaBrusati200226,Managerialimplicationsofthetransition,TheshiftfromStage1toStages2and3implieschangesinbothfunctionsandservicesintermsof:scope;variety:(a)actsandrules(b)publicgoods(c)“merit”goods(d)financialtransfers(e)guidelinesforotherorganizationsBUTmanagementpatternsdidnotchange!,“PublicManagementinaMixedEconomy”ChinaEuropeMTP,LucaBrusati200227,TheWeberianmodelofbureaucracy:administrationasa“blackbox”,Civilservantsareinchargeofimplementation,Politiciansareinchargeofpriority-setting,Citizensareexpectedtobenefit(andthustore-electpoliticians),“PublicManagementinaMixedEconomy”ChinaEuropeMTP,LucaBrusati200228,Featuresofthebureaucraticmodel(1),WillingnesstoseparatepoliticsfromadministrationBeliefintheneutralityofbureaucracy(“blackbox”)Underestimationoforganizationalcomplexity(emphasisoninputs)Riskofeffectivenessgaps(“bureaucraticfailures”),“PublicManagementinaMixedEconomy”ChinaEuropeMTP,LucaBrusati200229,Featuresofthebureaucraticmodel(2),Controlispursuedthroughanabsoluterationalityapproach:definitionof“ideal”behaviouralpatterns(procedures);checksoncompliancebetweenproceduresandactualbehavioursratherthanthesatisfactionofneedsRedesigningproceduresisbeyondthescopeofcivilservants,Emphasisonexternalcontrols,“PublicManagementinaMixedEconomy”ChinaEuropeMTP,LucaBrusati200230,Consequencesofthebureaucraticmodel,ViciouscircleofbureaucratizationNeedforinterventionsbypoliticiansonindividualdecisionsNoclear-cutdistinctionbetweenpoliticsandadministrationLackofatrulymanagerialresponsibilityCrisisoflegitimacyforpublicsectorinstitutionsEmphasisonthepositivefeaturesofmarkets,“PublicManagementinaMixedEconomy”ChinaEuropeMTP,LucaBrusati200231,“PublicManagementinaMixedEconomy”ChinaEuropeMTP,LucaBrusati200232,Thescopeforthemanagerialmodel,Tofostertheshiftawayfromthebureaucraticmodelitisnecessarytoensure:managerialautonomymanagerialcompetencemanagerialaccountabilitythroughthedevelopmentof:newmanagementrulesnewmanagementtoolsnewmanagementcadres,“PublicManagementinaMixedEconomy”ChinaEuropeMTP,LucaBrusati200233,Limitationsofthemanagerialmodel,Long-termandmulti-facetednatureofoutcomesIntrinsicproblemsinmeasuringperformanceLimitationstothepossibilitytoensureeffective,transparentmanagerialaccountabilityRiskofdemocracygaps(“spoilssystem”;needforstrongergovernancepatterns),“PublicManagementinaMixedEconomy”ChinaEuropeMTP,LucaBrusati200234,Bureaucraticandmanagerialmodels:acomparison,“PublicManagementinaMixedEconomy”ChinaEuropeMTP,LucaBrusati200235,Newmodelsofbureaucracy:design,CoercivebureaucracyOrganizationalsystemssuggestedbyexpertstoavoidpolitics(“theyknowbest”)LimitedparticipationtoavoiddrivingcostsupEnablementisjustamatterofimplementationNorevisionofstandards,EnablingbureaucracyOrganizationalsystemsinvolveemployeeesindesignandtestingtoencouragebuy-inBroadparticipationbyinvestingresourcesandprovidingtrainingEnablementgoalsareplannedImprovementofstandards,“PublicManagementinaMixedEconomy”ChinaEuropeMTP,LucaBrusati200236,Newmodelsof