Submitted in Accordance with the Requirements for the Degree of In
Total Page:16
File Type:pdf, Size:1020Kb
ORGANISATIONAL CULTURE AND TRANSFORMATION - THE ROLE OF THE DEPARTMENT OF PUBLIC SERVICE AND ADMINISTRATION. by VALIANT ABEL CLAPPER submitted in accordance with the requirements for the degree of DOCTOR OF ADMINISTRATION in the subject PUBLIC ADMINISTRATION atthe UNIVERSITY OF SOUTH AFRICA PROMOTER: PROF DJ BRYNARD JOINT PROMOTER: PROF JC PAUW NOVEMBER 2000 • DECLARATION I declare that "ORGAN/SA TIONAL CULTURE AND TRANSFORMATION - THE ROLE OF THE DEPARTMENT OF PUBLIC SERVICE AND ADMINISTRATION" is my own work and that all the sources that I have used or quoted have been indicated and acknowledged by means of complete references. (student number- 448-690-0) ACKNOWLEDGEMENTS I would be sadly lacking in gratitude and courtesy if I did not publicize my indebtedness to the many academics, practitioners, friends and colleagues who have contributed in various and selfless ways toward the completion of this thesis. I have greatly benefited from the assistance and suggestions of all with whom I have discussed aspects of this thesis over the past few years. The non-mentioning of their names is indirectly proportional to the sincere gratitude felt towards them. wish, however, to express special gratitude to the following persons: • Professors DJ Brynard and JC Pauw, respectively supervisor and joint supervisor for this thesis. • The Department of Public Service and Administration, particularly the members of the Transformation Unit, who granted permission to undertake the research for, and for granting the necessary interviews, guidance, and access to materials. • The CSD branch of the HSRC for a financial grant towards the completion of the research. • The Faculty of Economic Sciences of the Pretoria Technikon for financial assistance with which to "purchase" focus time in order to complete the thesis. Special thanks to Professors Maynard van der Merwe, Fires (PEJ) van Vuuren and the Faculty Research Committee. • Professor Geri Augusto (Kennedy School of Government, Harvard University, USA) for discursive repasts, and intellectual diversion. • My friends, who always show their support, and who enrich my life with their self sharing. Thomas Parker, Piet Smuts, and Carl Nagel, thank you especially. • Leon De W Fourie, colleague and friend, for support, and for sharing pertinent life skills. • My family for constant encouragement, unfailing support, and firm assurance of your prayers. Uncle· Geoff, Maggie, Ashley, Michelle, Sam' - I am forever appreciative of you and your/my families. • Keith Jarrett, thank you for "personal mountains", Branford Marsalis for "the beautiful ones ... not yet born". Wynton Marsalis, Art Pepper, Joshua Redman, Cleo Laine, and Cassandra Wilson for accompanyment through the seemingly endless days and nights. • Mrs EM Ackeer snr., for moral and spiritual support. • Mama - you continue to surprise me with your strength, wisdom, and love. Your Janus-like abilities have throughout the years created access where there, without a doubt was none. No wonder you are my hero! • Lauren, Eaton, and Alden, for your love, laughter, confidence, support, and superhuman tolerance - making the stresses endurable, and the long hours worthwhile. • God for the assurance of always being present (Heb 13:5b), and for ceaselessly providing according to my days (Deut 33:25b). DEDICATION To Lauren: for encouragement, for space, for enthusiasm ... You are my favourite person, ALWAYS! SUMMARY Thls thesis is premised upon the fact that any new government i~ faced with the difficult challenge of transforming the value system of the public service and ,..- . - - " incur11bent public officials if. that oJ th~ ancien regime is in conflict wit~ its own. Tc;> achieve this, the new government invariably has to transform the latter in accordance - - - - 1" with its new goals, value systems, and' basic assumptions b_y introducing new laws . and regulations alien to the experience of the inherited bureaucracy. This implies . exacting discontinuous change, requiring particular attention to organisational culture, and not mere tinkering with organisational charts, salary parity and related . ~ . ~ ~ ":) matters. The thesis finds that the interpretation of transformation currently endorsed by the - . ' . DPSA, and other transformation partners falls short of taking sufficient cognisance of - ' ' - . ~ the importance of the organisational culture perspective, with the result that the - ~ - - transformation process to date evinces a minimal degree of success in relation to • . • 9-.. organisational culture change. Evidence indicates that organisational culture is not sufficiently comprehended, defined, communicated, coordinated, or managed, due to the non-existence of feasible organisational culture change strategies or an adequately functioning maternal holding culture. This, accompanied by a lack of implementation of a national vision in relation to organisational culture change and a lack of political will in relation to organisational culture transformation, further stifles directed management and change of public service organisational culture. Proposals for the improvement of the above situation are put forward. The most important of these is the establishment of an informed maternal holding c11~ure, based on the mandate of Cabioet that the public service mu?t be. transformed in.~ order to achieve RDP goals. Establishing a successful maternal holding culture requires the promotion of the comprehension of the organis~tional culture perspective, an.d clear communication ancl coordina!ion of_ organisational culture and change strategies related thereto. This, in tun:i, demands, inter a/ia, the urgent . • . I . building of management capacity in matters pertaining to organ_isational culture, backed by political commitment and the fostering of a common vision that will ' ' ' provide the direction and values for a new organisational culture. ' ,. ~ Key terms: Organisational culture; Public service transformation; Maternal holding culture; Interpretive schemes; Logics of action; Second order ·change; Sub-cultures; Organisational climate; Department of Public Service and Administration; Basic assumptions; Values; Artefacts. A . .• ~ .. '! ~t ~ ~ !". l . ,, . ' 3~:;2. 3b 70968 CL.AP \\\\~\~\~fi~\\~\1~11\~\l\~\\\ 0001787662 ORGANISATIONAL CULTURE AND PUBLIC SERVICE TRANSFORMATION - ROLE OF THE DEPARTMENT OF PUBLIC SERVICE AND ADMINISTRATION TABLE OF CONTENTS CHAPTER ONE: INTRODUCTION 1.1 Introduction ........................................................................................... 1 1.2 Statement of the problem ..................................................................... 1 1.3 Originality and relevance ...................................................................... 3 1.4 Frame of reference ............................................................................... 4 1.4.1 Geo-dimension ..................................................................................... 5 1.4.2 Time frame ........................................................................................... 6 1.5 Research methodologies employed ..................................................... 6 1.5.1 Interviews, official documents, and other sources utilised ................... 9 1.5.1.1 Excess to pertinent documentation ...................................................... 10 1.5.1.2 Observation and discourse analysis .................................................... 1O 1.5.2 Validation through triangulation ............................................................ 11 1.6 Reference technique ............................................................................ 11 1.7 Terminological clarification ................................................................... 12 1.7.1 Transformation ..................................................................................... 12 1.7.2 Reform .................................................................................................. 14 1.7.3 Rationalisation ...................................................................................... 15 1.7.4 Organisational culture ..................................................... , .................... 15 1.7.5 Maternal holding culture ....................................................................... 16 1.7.6 Public service and public sector........................................................... 18 1.8 Summary and sequence of chapters .................................................... 18 1.9 End notes ............................................................................................. 20 CHAPTER TWO: SURVEYING ORGANISATIONAL CULTURE - IN PURSUIT OF AN OPERATIONAL DEFINITION 2.1 Introduction ........................................................................................... 21 2.2 Historical development of the organisational culture perspective ........ 22 2.2.1 Major approaches in organisation theory ............................................. 24 2.2.1.1 Classical organisation theory(+/- 1776-1945) ..................................... 24 2.2.1.2 Classical philosophers(+/- 1920-1945) ............................................... 25 2.2.1.3 Neoclassical organisation theory (1945-1978) ..................................... 26 2.2.1.4 Modem structural organisation theory(+/- 1969-1982) ........................ 28 2.2.1.5 Systems and contingency theories of organisation (+/- 1970-1990) .................................................................................... 29 2.2.1.6 The power and politics