Organization Theory for the Public Sector

208 Pages·2007·1.13 MB·English

by  Christiensen

1111 Organization Theory and
2
the Public Sector
3
4
5
6
7
8
9
10
1
2
3
411
5111 Public-sector organizations are fundamentally different from their private-sector
6 counterparts.They are multifunctional,follow a political leadership,and the majority do
7 not operate in an external market. In an era of rapid reform, reorganization and
8 modernization of the public sector,this book offers a timely and illuminating introduction
9 to the public-sector organization that recognizes its unique values,interests,knowledge and
20111 power base.
1 Drawing on both instrumental and institutional perspectives within organization theory,
2 as well as democratic theory and empirical studies of decision-making,the book addresses
3 five central aspects of the public-sector organization:
4
51111 ■ goals and values
6 ■ leadership and steering
7 ■ reform and change
8 ■ effects and implications
9 ■ understanding and design
301111
1 The book challenges conventional economic analysis of the public sector,arguing instead
2 for a political-democratic approach and a new prescriptive organization theory.A rich
3 resource of both theory and practice,Organization Theory and the Public Sector:
4 Instrument, culture and mythis essential reading for anybody studying the public sector.
5
6
7
8
9
40
1
2111

Organization
Theory and the
1111
2
3 Public Sector
4
5
6
7
Instrument, culture and myth
8
9
10
1
Tom Christensen,
2
3
Per Lægreid, Paul G. Roness
411
5111
and Kjell Arne Røvik
6
7
8
9
20111
1
2
3
4
51111
6
7
8
9
301111
1
2
3
4
5
6
First published 2007
by Routledge
2 Park Square,Milton Park,Abingdon,Oxon OX14 4RN
Simultaneously published in the USA and Canada
by Routledge
270 Madison Ave,New York,NY 10016
This edition published in the Taylor & Francis e-Library, 2007.
“To purchase your own copy of this or any of Taylor & Francis or Routledge’s
collection of thousands of eBooks please go to www.eBookstore.tandf.co.uk.”
Routledge is an imprint of the Taylor & Francis Group,an informa business
© 2007 Tom Christensen,Per Lægreid,Paul G.Roness,Kjell Arne Røvik
All rights reserved.No part of this book may be reprinted or reproduced
or utilized in any form or by any electronic,mechanical,or other means,
now known or hereafter invented,including photocopying and recording,
or in any information storage or retrieval system,without permission in
writing from the publishers.
British Library Cataloguing in Publication Data
A catalogue record for this book is available from the British Library
Library of Congress Cataloging in Publication Data
Organization theory and the public sector/Tom Christiensen ...[et al.].
p.cm.
Includes bibliographical references and index.
1.Public administration. 2.Organizational sociology
I.Christiensen,Tom.
JF1351.O74 2007
302.3!5 – dc22 2007015385
ISBN 0-203-92921-7 Master e-book ISBN
ISBN10:0–415–43380–0 (hbk)
ISBN10:0–415–43381–9 (pbk)
ISBN10:0–203–92921–7 (ebk)
ISBN13:978–0–415–43380–8 (hbk)
ISBN13:978–0–415–43381–5 (pbk)
ISBN13:978–0–203–92921–6 (ebk)
1111
2
3
Contents
4
5
6
7
8
9
10
1
2
3
411
5111 List of tables ix
6 About the authors x
7 Preface xi
8 Acknowledgements xiii
9 List of abbreviations xv
20111
1 1 Organization theory for the public sector 1
2 Learning objectives 1
3 An organizational theory approach to the public sector 1
4 Differences between public and private organizations 4
51111 Characteristics of public organizations 6
6 Delimitation of organization theory for the public sector 8
7 Bounded rationality, political science and organization theory 10
8 Dependent variables 12
9 Structures, processes and tasks in public organizations 15
301111 Outline of this book 17
1 Chapter summary 18
2 Discussion questions 18
3 References and further reading 18
4
5 2 An instrumental perspective 20
6 Learning objectives 20
7 Organizations as instruments 20
8 The logic of consequence – instrumentally rational actions 22
9 Formal organizational structure 23
40 Structural features and concrete actions 27
1 Coalitions and interest articulation 29
2111 Organizational structure, environment and uncertainty 31
v
CONTENTS
Steering through design and exploiting latitude for action 33
Rational calculation and political control 34
Chapter summary 35
Discussion questions 35
References and further reading 36
3 A cultural perspective 37
Learning objectives 37
The meaning of organizational culture 37
The explanatory power of cultural variables 39
The logic of cultural appropriateness 40
Establishing and changing organizational culture 43
The significance of historical roots for cultural paths of
development 45
Organizational culture and leadership 47
Demography and culture 48
Characteristics of a political-administrative culture 49
Institution and environment – culture in the context of a wider
political system 50
Possible advantages and disadvantages of a well-developed
organizational culture 52
Contextualization, ethics and trust 54
Chapter summary 55
Discussion questions 55
References and further reading 55
4 A myth perspective 57
Learning objectives 57
Meaning of myths 57
Contents of myths 59
Relationship between different recipes 61
Elastic recipes 62
Development and diffusion of myths 63
Organizational identity as a condition for the spread of
organizational recipes 66
Characteristics of the most widely spread organizational recipes 67
How rationalized recipes are adopted and implemented 70
Rationalized recipes in instrumental and institutional interpretations 74
Chapter summary 76
Discussion questions 76
References and further reading 77
vi
CONTENTS
1111 5 Goals and values 79
2 Learning objectives 79
3 Meaning of goals and values 79
4 Definition of goals 80
5 Formulation and development of goals 82
6 Typical features of goals in public organizations 86
7 Management by objectives and results (MBOR) 89
8 Values in public organizations 91
9 Effects of goals and values in public administration 94
10 Chapter summary 95
1 Discussion questions 95
2 References and further reading 96
3
411 6 Leadership and steering 97
5111 Learning objectives 97
6 Meaning of leadership and steering 97
7 More steering than leadership – an instrumental perspective 99
8 More leadership than steering – a cultural perspective 100
9 Symbolic aspects of leadership and steering 101
20111 Types of political and administrative leadership 102
1 Leadership functions and roles 103
2 Leadership and levels 106
3 Leadership and responsibility 107
4 Leadership and the public 109
51111 Leadership traits and styles 110
6 Leadership and context 113
7 Leadership and steering in public organizations 115
8 Chapter summary 119
9 Discussion questions 120
301111 References and further reading 120
1
2 7 Reform and change 122
3 Learning objectives 122
4 Reform and change in public organizations 122
5 Organizing the reform process 125
6 Reform programmes and reform initiatives 128
7 Course and outcome of reform and change processes 133
8 Reform and change in the central authority of the Norwegian
9 police force 135
40 Perspectives and connections 139
1 Chapter summary 140
2111
vii
CONTENTS
Discussion questions 140
References and further reading 141
8 Effects and implications 143
Learning objectives 143
Design of public organizations matters but the effects are
ambiguous 143
Perspectives and effects 144
Meaning of effects 145
Difficulty of measuring effects 149
Challenges in performance measurement and effect studies 152
Knowledge about effects 158
There is no best solution – learning and effects 161
Chapter summary 163
Discussion questions 163
References and further reading 163
9 Understanding and design 165
Learning objectives 165
Perspectives, design and strategies 165
Complex and dynamic logics of action 166
Towards a prescriptive organization theory for the public sector 175
Normative foundation for public organizations 177
Significance of context 178
How reforms should be carried out 181
Prospects for the future 182
Chapter summary 184
Discussion questions 185
References and further reading 185
Index 187
viii
1111
2
3
Tables
4
5
6
7
8
9
10
1
2
3
411
5111 1.1 Ways of interrelating the public and private sectors 5
6 1.2 The book’s matrix structure 17
7 2.1 Organizational structures in different environments 32
8 2.2 Forms of action with accompanying structural features 33
9 6.1 Identities and intensity of interaction 110
20111 8.1 Effects of public sector reforms 147
1
2
3
4
51111
6
7
8
9
301111
1
2
3
4
5
6
7
8
9
40
1
2111
ix