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Rethinking Public Administration: an Overview Note ST/TCD/SER.E/27 Division for Public Economics and Public Administration Department of Economic and Social Affairs RETHINKING PUBLIC ADMINISTRATION: AN OVERVIEW NOTE CONTENTS Page Introduction .............................................................................. 1 Chapter 1. Governance, development and the Ecology of Administration.... 4 Chapter 2. Governance - sharing systems ......................................... 19 Chapter 3. Planning, policy analysis and decision-making ..................... 29 Chapter 4. Administrative decision-making ....................................... 39 Chapter 5. Organizational and institutional imperatives ........................ 49 Chapter 6. Management systems and organizational development ............ 60 Chapter 7. Civil service systems .................................................... 68 Chapter 8. Personnel administration ............................................... 77 Chapter 9. Human resource development Training and management development dimensions ............ 89 Chapter 10. Managing the national economy ...................................... 102 Chapter 11. Financial management and the public budgeting process ........ 114 Chapter 12. Reforming public administration ..................................... 128 Chapter 13. Administrative accountability and control .......................... 136 Chapter 14. Financial accountability and control ................................. 146 Chapter 15. Administrative abuse and its remedies .............................. 157 Chapter 16. Use of information technology in public administration ......... 166 Chapter 17. Information resource management ................................... 195 Chapter 18. Conclusion ................................................................ 212 INTRODUCTION This publication was prepared by the Governance and Public Administration Branch (GPAB), Division of Public Administration and Development Management (DPADM), Department for Economic and Social Affairs (DESA) of the United Nations, as one of the Branch's activities under paragraph 10.36 (Governance and Public Administration) of the programme budget for the biennium 1994-1995. It connotes the continuance of the practice of the United Nations programme in public administration to provide sources of information on public administration. Rethinking Public Administration: an Overview is a successor to three earlier publications issued by the United Nations: Standards and Techniques of Public Administration (1951), Handbook of Public Administration: Current Concepts and Practices with Special References to Developing Countries (1961), Development Administration: Current Approaches and Trends (1975). These three publications served as useful sources of information for public administrators worldwide. Over time many changes have taken place in the environment, technology, assumptions and dynamics of public administration. Recent globalization trends, the computer and communications revolution, easy movement across borders of professional and technical personnel, data, information and technology, have had a significant impact on the practice of public administration. These trends have not only stimulated new opportunities, but also generated new problems. In particular, due to new national and international realities, many of the earlier concepts, standards and techniques of public administration have been changed, adapted, augmented or even replaced, although many basic principles remain valid. Rethinking Public Administration takes a new look at public administration, identifies major influencing forces, and highlights public administration approaches and techniques which need updating and revision. It is intended to provide an overview and a comparative perspective on public administration in developing countries and particularly, the evolution of administrative problems, practices and strategies. It depicts the functioning of the State and a checklist of current scenarios, issues and approaches in public administration. The checklist facilitates the identification of opportunities for institutional development, capacity building and performance improvement. Accordingly, the publication can serve as a new or revised handbook on public administration for those who wish to continue their efforts to improve public administration systems. Five major trends are especially important for their efforts and illustrate key emerging concerns. 1 1. The changing role of the State. Many of the prevailing concepts and practices of public administration were developed and formulated around the centrality of the State and public administration in the process of national development. While the role of the State in national development continues to be important, consensus is shifting about the precise functions to be assigned to the State vis-a-vis other institutions and non-governmental organizations, and the appropriate modalities for discharging different national functions. For example, while maintaining a policy role, many States have opted for competition in a variety of service delivery areas. The application of market mechanisms in place of administrative action in economic activity is now widely recognized and increasingly applied in many countries. 2. Democratization trends. Democratic institutions are becoming more widespread and democratization movements are manifesting themselves in many countries. The number of politically aware individuals demanding empowerment is also on the increase in most countries. 3. The changing nature of public policy management. Public management is being affected by two seemingly contradictory forces. On the one hand, many national issues have been redefined by globalization trends: environmental concerns; human rights; economic, trade and aid imperatives; and the need for international standards. The increased speed of, and access to, communications have also catapulted national problems into international arenas. On the other hand, there are demands for independence, greater autonomy and decentralization within multi-nation and nation-State systems. Unitary systems of planning and administration are no longer acceptable in many countries of the world. 4. The many voices of the policy process. Emerging concerns have dramatically shifted social agendas. For example, environmental concerns, labour costs and international labour mobility have become major preoccupations. Similarly, human rights and the role of women and other disadvantaged groups have become major issues. Natural and human-made disasters create new problems and demand urgent government attention and resources. 5. The imperative use of information technology. With the development of microcomputer and data communications technologies, computerization and information systems development have become essential in improving the effectiveness and efficiency of public administration and an organic part of the economic and social development process. Effective use of modern information technology leads to opportunities for speeding up development as well as to the challenge to manage these changes. At the same time, management of information systems provides both a more objective basis for decision-making and a demand for targeted training and resource utilization. In general, all of the foregoing represent challenges to administrative practice. To effectively meet these challenges and their consequences, public administration needs to modify its style and substance. In many cases, far reaching institutional changes are required and involve strengthening inter-institutional cooperation to promote harmony among changing administrative, political, market and non-governmental institutions. Administrative processes also need to be reviewed and/or re- engineered. For example, planning, control and accountability are becoming increasingly decentralized and diffuse. Finally, public managers need more training in the new realities and skills which are required for more effective performance in increasingly complex environments. Within 4 this context, Rethinking Public Administration presents a wide array of experiences and approaches to public administration reform. At the same time, this diversity reveals some caveats. The number of countries which are the focus of this study is indeed large. They represent great diversity in location, population, ecology, history, culture, religion, colonial heritage, political evolution and economic progress. Naturally, it is difficult, if not impossible to enter into a detailed discussion of each administrative system with all its subtle nuances and customs. The analysis is therefore kept at the level of general principles which are relevant for many countries. Even then, we must be mindful of the many ways in which different countries have chosen to interpret these principles in everyday practice. Likewise, the number of public administration issues requiring urgent attention by developing countries is large. We attempt to highlight the major problem areas which are common to a sizeable number of countries, and to flag urgent issues whose consideration can lead to a review and strengthening of administrative capabilities. While some countries have made significant progress in managing change and controlling their future, others have lagged behind. Whatever their level of progress, all Governments feel the need to make continuous improvement in public administration. We have attempted to highlight the opportunities and strategies for
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