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Comparative
Administrative Change
and Reform
Lessons Learned
Edited by
jon pierre and patricia w. ingraham
McGill-Queen’s University Press
Montreal & Kingston • London • Ithaca
© McGill-Queen’s University Press 2010
isbn 978-0-7735-3659-3 (cloth)
isbn 978-0-7735-3660-9 (paper)
Legal deposit first quarter 2010
Bibliothèque nationale du Québec
Printed in Canada on acid-free paper that is 100% ancient forest free
(100% post-consumer recycled), processed chlorine free.
This book has been published with the help of a grant from the
University of Moncton.
McGill-Queen’s University Press acknowledges the support of the Canada
Council for the Arts for our publishing program. We also acknowledge
the financial support of the Government of Canada through the Book
Publishing Industry Development Program (bpidp) for our publishing
activities.
Library and Archives Canada Cataloguing in Publication
Canada’s game : hockey and identity / edited by Andrew C. Holman.
Comparative administrative change and reform: lessons learned /
edited by Jon Pierre and Patricia W. Ingraham.
Festschrift in honour of B. Guy Peters.
Includes bibliographical references.
isbn 978-0-7735-3659-3 (bnd)
isbn 978-0-7735-3660-9 (pbk)
1. Administrative agencies – Reorganization. 2. Civil service reform.
3. Public administration. 4. Comparative government. i. Pierre, Jon
ii. Ingraham, Patricia W. iii. Peters, B. Guy da.
i. Holman, Andrew Carl, 1965–
jf51.c611 2010 352.3’67 c2009–906015–9
Typeset in Sabon 10.5/13
by Infoscan Collette, Quebec City
This book is dedicated
with affection, respect, and gratitude to
b. guy peters
for his remarkable contributions
to the study of policy, administration,
and governance.
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Contents
Preface ix
Ideas in Action: Why the Reality of the Administrative Reform
Grinder Matters 3
Patricia Ingraham and Jon Pierre
part one the ideas of reform: reforming
governance and accountability
1 Change and Continuity: An Institutional Approach
to Institutions of Democratic Government 15
Johan P. Olsen
part two the ideas of reform: leaders and change
2 New Public Leadership for Public Service Reform 51
Geert Bouckaert
3 Leaders and Leadership in Administrative Reform 68
Ian Thynne
part three the ideas of reform: management
systems and other reformed tools
4 Simply the Best? The International Benchmarking of Reform
and Good Governance 91
Christopher Pollitt
5 Cyber-bureaucracy: If Information Technology Is So Central
to Public Administration, Why Is It So Ghetto-ized? 114
Christopher Hood and Helen Margetts
viii Contents
part four the design of reform: the evolution
of policy tools
6 Reforming Management and Management Systems:
Impacts and Issues 139
John Halligan
part five the design of reform: western ideas
and models in non-western settings
7 Implementing Developed Countries’ Administrative Reforms
in Developing Countries: The Case of Mexico 159
José Luis Méndez
8 Western Models and Administrative Reform in China:
Pragmatism and the Search for Modernity 182
John P. Burns
9 Bureaucrats, Politicians, and the Transfer of Administrative
Reform into Thailand 207
Bidhya Bowornwathana
part six change and reform in a multinational
context
10 Change and Reform in the European Union 233
Alberta M. Sbragia
part seven looking back at reform efforts:
what worked?
11 Success and Failure of Reform: Taking Stock 259
Donald J. Savoie
12 Conclusions: The Future of Public Management 278
Jon Pierre
Contibutors 287
References 289
Index 337
Preface
B. Guy Peters is the Maurice Falk Professor of American Government
at the University of Pittsburgh. A native of Hopewell, Virginia, Professor
Peters received his phd from Michigan State University. He was an
early leader in the analysis of public policy and the policy process.
His classic text, American Public Policy: Problems and Prospects, is
now in its seventh edition. He moved quickly to a companion interest
in comparative politics, policy, and administration. Comparative
Public Administration: Problems of Theory and Method was first
published in 1988 and quickly became a touchstone for scholars and
students who studied the role of administration in policy processes
and administrative reform.
Guy Peters is the author or editor of over forty books that have
been translated into a dozen languages. He has been a visiting pro-
fessor or research scholar at over twenty-five universities around the
world and has lectured at many more. His hundreds of published
papers and research reports have informed virtually every aspect of
public policy, administrative politics and policy, administrative
reform, governance, institutionalism and institutionalist theory, and
globalization, among other subjects. His perceptive analyses have
made enormous contributions to these areas.
Perhaps of equal significance, Guy Peters’ international network
of colleagues and friends includes the leading scholars in the United
States and Canada, the United Kingdom and Europe, Australia and
New Zealand, Asia, and Latin America. Guy’s work with Donald
Savoie at the Canadian Centre for Management Development (now
the Canada School of Public Service) created not only five important
books but a lasting set of collaborations world-wide. Among his
x Preface
many contributions will be that the connections he provided have
sparked some of the healthiest debates in academia and government.
Guy and his wife Sheryn, avid bird watchers, have traversed the
globe several times in search not only of ever elusive species but also
the ever elusive idea or concept that can move scholarly analysis
forward. In his writing, his lectures, his students, and his unending
energetic inquiry, Guy Peters is a model of the remarkably cre-
ative syn ergy that can exist between academics and the worlds they
inhabit.
