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The Interpretation of Canadian Public Administration Reforms

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The Interpretation of Canadian Public Administration Reforms SACRED IDEALS: THE INTERPRETATION OF CANeDIAN PUBLIC AD~IIXISTRATIONREFORMS b. .- Brenda Anne Rauer B..-i.. The Lnl\t.r\~t! of Alberta. 1990 THESIS SLB\IITTED I3P.ARTIXL FLLFILLMENT OF THE REQCIRE.CIEN7TSFOR-THE DEGREE OF I 11.ASTER OF ARTS In thc Department POLITIC.4L SCIENCE . APPROVAL 4 e NAm: Brenda A. Bauer DEGREE: Master of Arts Degree ( Department of Political Science ) - TITLE OF THESIS:-Sacred Ideals: The Interpretation of Canadian Public Administration Reforms g EXAMINING COMMITTEE: Chair: Dr. Peggy Mcyer - -.- 3@mi%' Date ~aurentDobuzinskis Professor of Political Science Senior Supervisor - -- - Signature Date Paddy Smith Professor of Political Science Internal Examiner -- , -~ Signature Date Mark Wexler Professor of Business Administration External Examiner National Library Bibliothique nationale 1+1 of Canada du Canada Acquisitions and Acquisitions et Bibliographic Servi&s servtces biblibgraphiques 395 Weiltngtm Street 395.rue Welimgtm OttawaON KlAW OnawaON KlAON4 Canada CaMda Your h& Vorre retermce Our file Norre reference The author has granted a non- L'auteur a accorde une licence non exclusive licence allowing the exclusive pennettant a la National Library of Canada to Bibliotheque nationale du Canada de reproduce, loan, distribute or sell reproduire, preter, distribuer ou copies of hsthesis in microform, vendre des copies de cette these sous paper or electronic formats. la forme de microfiche/film, de reproduction sur papier ou sw format electronique. The author retarns onnershp of the L'auteur conserve la propriete du cop,yright in ths thesis. Neither the droit d'autew qui protege cette thkse. thesis nor substantla1 extracts fiom it Ni la these ni des extraits substantiels may be printed or otherwise de celle-ci ne doivent Ctre imprimks reproduced without the author's ou autrement reproduits sans son permission. autorisation. SACRED IDEALS 1 BAUER 1 PAGE iii ABSTRACT: SACRED IDEALS: THE INTbRPRETATION OF CANADIAN8 PUBLIC ADMINISTRATION REFORMS by Brenda Anne Bauer, Department of Political Science at Simon Frasa University s The expectations which Canadians have of public administration have changed dramatically since 1970, and in response major reforms have been intwduced. .4t issue is the most basic and fundamental concept. definition of the limitations of what Canadians expect from, and will accept from. public administration. This paper examines the importance of the philosophy and values of public administration with regard to management reform initiatives. Chapter One, "The spirits of change", presents a three-phased typology of management reforms. Phase one, "Cost- cutting and centralized control efforts." 1983 to 1992, represents the efforts of consecutive Conservative governments to force the public service to become more ?B efficient through centralized pressure and control tactics. Phase two. "Efficiency and- effectiveness," 1992 to the pr&ent&alds a new philosophy of management and its . associated tools among practitioners. In academic analysis this international trend in public administration become knoum as the new public management or managerialism. Phase three, "Cooperative change." 1995 to the present, represents a shift toward the managerial ideal on the part of the federal gokemment. Chapter two. "Visions of .4ccountabilit).," examines traditional and managerial kiews of accountability. Esaming the histor! of accountabilitj., this chapter &views its elements. itlduding: relationships. process and timing. The influence of managerial administration is considered, and then contrasted withsome alternati~etheories: postmodernism, public choice. and democracy. The conclusion within this chapter is that accountability functions as a result of both formal and informal mechanisms, and that the , system of accountability must be flexible enough to incorporate the changing vales of scciet).. This said. it is im7perati\.ethat the basic expectations which citizens have of public administration be clearly articulated. SACRED IDEALS I BAUER / PAGE iv Chapter Three. "The search for public administration's holy grail" looks at analysis of public jadrninistration, and concludes that, while differeni philosophies and theories can enhance our knowledge in general about public administration, the nature of the beast precludes the construction of an overarching theory of how public administration should or does work. In conclusion, the paper recommends that historical review of public administration is helpful, because it helps to it into context the claims of those heralding the birth of a new savior for public administration. SACRED IDEALS / BAUER / PAGE v DEDICATION The completion of a work of this magnitude is difficult under the best conditions. With the added challenge of two children under three years of age the prospect becomes even more daunting. This paper, and the completion of this degree would not have been possible without a great deal of support. y.4~a full-time employee of the federal public senice. I was drawn to Simon Fraser University because of the flexibility and openness of the Department of Political Science. The fact that I was able to attend as a part-time student for the duration of my course-work allowed me to undertake this Master's program. Although I took a period of time off to have two childjen, I was lucky to have a famiiy which wholeheartedly supported my return to school on a full-time -basis in order to facilitate the completion of this thesis.r" a dition, my friends should be thanked. as they have provided a constant source ot: and debate for the ideas provided within this thesis. SACRED IDEALS / BAUER / PAGE vi TABLE OF CONTENTS TITLE PAGE ................................................................................................................................................... i APPROVAL PAGE ........................................................................................................................................ ii =, =, ABSTRACT ........................... .. ................................................................................................................... iv DEDICATION ................................................................................................................................................. v TABLE OF CONTENTS ..........................................................................................................................CP vi CHAPTER ONE: THE SPIRITS OF CHARGE ....................................................................................... 4 PHASEONE: COST-CLTTING ~LUD CENTRALIZED CONTROL EFFORTS .............................................................. 6 PHASETwo: EFFICIENCY.m D EFFECTIVENESS............................................................................................. 13 PHASETHREE: COOPERATIVE CHANGE ................................................................................................. ........ 23 THREEPHASES * LATER: ARE WE THEREYET'? ............................................................................................... 33 CHAPTER TWO: VISIONSOF ACCOCNTABILITY ......................................................................... 36 GROWTHAND DEVELOPMENTOF ACCOUNTABILITY ...................................................................................... 36 REVIS~~INGTHE BASIC ELEMENTS OF ACCOLNT.\RILITY............................................................................... 39 Relationships ............................................................................................................................................. 39 Process .............................. :..................................................................................................................... 71 Tim:ng ....................... ,... ., .......................................................................................................................... 58 . Framing Accountabrlrp .............................................................................................................................61 ACCOLXT~ILITYIN THE POLITICIZEDEN\ IROSMEhT ..................................................................................63 Postmodern accoun~abiiip........................................................................................................................ 64 Public choice accountabiiip .................................................................................................................... 66 Democratic accounrabilip................................... .t ....................................................................................67 ACCOLNT.~B[LITY.REVELATION OR REDHERRIM'? .................................................................................... 70 CHAPTER THREE: THE SEARCH FOR PUBLIC ADMINISTRATION'S HOLY GRAIL ............ 71 HISTORICALPERS&CTIVE AND PREDICTIO>S................................................................................................ 72 . Explamng the Par....... :.. r.. ....................................................................................................................... 72 Evaluating the Present ............................................................................................................................... 7-C Prescriptive Future .... .............................................................................................................................79 THEPRIVXTE/PUBLIC PUZZLE ............................................
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