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©Willy McCourt and Martin Minogue 2001
All rights reserved. No part of this publication may be reproduced, stored in a
retrieval system or transmitted in any form or by any means, electronic, mechanical
or photocopying, recording, or otherwise without the prior permission of the
publisher.
Published by
Edward Elgar Publishing Limited
Glensanda House
Montpellier Parade
Cheltenham
Glos GL50 1UA
UK
Edward Elgar Publishing, Inc.
136 West Street
Suite 202
Northampton
Massachusetts 01060
USA
A catalogue record for this book
is available from the British Library
Library of Congress Cataloguing in Publication Data
The internationalization of public management : reinventing the Third World state /
edited by Willy McCourt, Martin Minogue.
p. cm. — (New horizons in public policy)
Includes index.
1. Public administration—Developing countries. 2. Civil service—Developing
countries. 3. Developing countries—Economic policy. 4. Local government—
Developing countries.
I. McCourt, Willy. II. Minogue, Martin. III. Series.
JF60.I5827 2001
351.172'4—dc21
00–056176
ISBN 1 84064 181 9
Printed and bound in Great Britain by Bookcraft (Bath) Ltd.
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For Maureen and Sally (Martin Minogue)
For Glynnis, Maya, Róisín and Susan (Willy McCourt)
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Contents
List of figures viii
List of tables and boxes ix
List of contributors x
Preface xii
1 The internationalization of new public management 1
Martin Minogue
2 Should flawed models of public management be exported?
Issues and practices 20
Martin Minogue
3 Administrative reform in core civil services: application and
applicability of the new public management 44
Charles Polidano
4 New public management and development: the case of public
service reform in Tanzania and Uganda 70
Jeremy Clarke and David Wood
5 Local government: management or politics? 90
Howard Elcock and Martin Minogue
6 The NPM agenda for service delivery:a suitable model for
developing countries? 107
Willy McCourt
7 Reinventing the Third World state: service delivery and the
civic realm 129
David Hulme
8 Privatization and regulation in developing countries 153
Paul Cook
9 Human resource management and new public management: two
sides of a coin that has a low value in developing countries? 174
Harry Taylor
10 Information systems and public sector reform in the Third World 196
Richard Heeks and David Mundy
11 Moving the public management debate forward: a contingency
approach 220
Willy McCourt
Index 254
vii
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Figures
4.1 Tanzania’s performance improvement model 81
9.1 A contingency model of public sector reform in LDCs 190
10.1 The IS-IT-reform relationship 199
10.2 The ITPOSMO dimensions of change 213
10.3 Creating hybrids for the public sector 215
viii
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Tables and boxes
TABLES
4.1 Relative size and remuneration of the general government
workforce: international comparisons (1995) 72
4.2 Uganda: staffing reductions/salary increases 72
4.3 Effect of retrenchment on total government employment:
Tanzania 1971-98, selected years 73
4.4 Service delivery survey: health in Uganda (1995) 74
4.5 Sector comparisons of gross pay levels, 1996 82
7.1 Modes of direct service delivery by civic organizations (CO) 139
9.1 Key elements of NPM and HRM philosophy compared 179
9.2 LDC contexts and NPM/HRM thinking 187
10.1 Differences between national and political models
of organizations 207
11.1 Six tests of three public management models 243
11.2 Models of management in Uganda’s civil service reform
programme 246
BOXES
2.1 Principal UK privatizations, 1980-94 22
2.2 Scale of privatization in OECD countries, 1979-91 23
2.3 UK public expenditure as % of GDP 23
2.4 UK growth rate comparisons 24
2.5 Prior options review results to 1993 26
2.6 British executive agencies 29
2.7 New Zealand public service restructuring 29
2.8 Citizen’s Charter Programme, UK 31
2.9 Performance payments in the UK 33
4.1 Consultative policy and public services: Uganda 77
4.2 Uganda: delegating budgets and enhanced performance reporting 79
4.3 Private sector involvement: health sector reforms in Tanzania 87
7.1 NGO-government relationships in Kenya 134
7.2 Government mechanisms for NGO coordination in Nepal 135
7.3 The Bangladesh Rural Advancement Committee (BRAC) 138
ix
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Contributors
Howard Elcockis Professor and Honorary Research Fellow at the University
of Northumbria. While teaching politics and government at Hull University
he was also a serving member of the Humberside County Council. He has
published extensively in the area of British local government and public
administration, and is author of the respected textbook Local Government(3rd
edition, 1994, Routledge). He is currently working on a study of regionalism
and strategic planning in England and is about to publish a book on political
leadership.
Jeremy Clarkeand David Woodare Senior Governance Advisers at the UK
Department for International Development, and have recently been involved
in public sector reform programmes in Tanzania and Uganda.
Paul Cook is Reader in Economics at the Institute for Development Policy
and Management at the University of Manchester. He has published
extensively on comparative privatization policy and practice, most recently
(with Colin Kirkpatrick and Fred Nixson, eds) Privatization, Enterprise
Development and Economic Reform (Edward Elgar, 1998). He has provided
consultancies to many international agencies, including UNDP (United
Nations Development Programme), ADB (Asian Development Bank),
UNCTAD (United Nations Conference on Trade and Development) and ILO
(International Labour Organization). His current interest is in regulatory
systems.
Richard Heeks([email protected]) is a senior lecturer in information
systems at the University of Manchester in the Institute for Development
Policy and Management. His most recently published book is Reinventing
Government in the Information Age (Routledge, 1999). He has provided
consultancy inputs to public sector organizations worldwide and currently
directs a Master’s programme in ‘Management and Information’. His
homepage is located at http://www.man.ac.uk/idpm
David Hulme ([email protected]) is Professor of Development
Studies at the Institute for Development Policy and Management, University
of Manchester. He has particular interests in public service provision for the
poor in developing countries and in state-voluntary sector relationships. He is
author of Governance, Administration and Development: Making the State
x
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Contributors xi
Work (London: Macmillan, with M. Turner) and NGOs, States and Donors:
Too Close for Comfort?(London: Macmillan, with M. Edwards).
Willy McCourt([email protected]) is a Lecturer in human resource
management in the Institute for Development Policy and Management at the
University of Manchester, having previously worked in British local
government and adult education, and in higher education in Nepal. His current
research interests are public service reform and human resource management
in developing countries.
Martin Minogue ([email protected]) is a Senior Research Fellow
at the Institute for Development Policy and Management, University of
Manchester, and was from 1984 to 1996 Director of the University’s
International Development Centre. He has published extensively in the area of
comparative public policy and development, and has undertaken consultancies
for the UNDP, ADB, British Council, UK Department for International
Development, and the Economic and Social Research Council (ESRC-UK).
David Mundy ([email protected]) is a Lecturer in information
systems for development at the University of Manchester in the Institute for
Development Policy and Management. He is a chartered engineer specializing
in information systems. He has conducted research and undertaken consul-
tancy assignments in a number of developing countries.
Charles Polidano([email protected]) is currently at the Office of
the Prime Minister, Valletta, Malta. Between 1996 and 1999 he was a Lecturer
at the Institute for Development Policy and Management, University of
Manchester. He has published widely on public management and
accountability in journals such as Public Administration, Governance, Public
Managementand World Development. He is also co-editor of Beyond the New
Public Management: Changing Ideas and Practices in Governance (Edward
Elgar, 1998).
Harry Taylor ([email protected]) is Lecturer in Human Resources at
the Institute for Development Policy and Management at the University of
Manchester. After a career as an HR manager in the UK he entered the
academic world and in his current post has acquired substantial consultancy
experience in less developed countries (LDCs) advising governments and
donors on many aspects of human resource management (HRM). His research
interests are the applicability of HRM concepts to LDC organizations,
employee relations, and HRM in the public sector.
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Preface
Those who teach, research and advise in the field of development policy and
management constantly grapple with key questions of public management
reform. What is it exactly? How much of it is ‘new’ and how much merely a
restatement of long-established ideas? What is the way ahead for public
management in developing and transitional economies? Should governments
keep providing most public services, or should they let private and civil
society contractors in on the act? Should the centre cling to the reins of power
so as to minimize corruption, or should it delegate downwards so as to
empower frontline staff and the communities which they serve? Should
reformers borrow from the innovations and practices of developed countries
or should they seek to devise their own creative responses to the public
management problems they face?
The aim of this collection is to move the public management reform debate
forward by considering the ways in which these and other questions are
currently being answered across a range of countries and systems. Many of the
issues were raised in a 1997 International Conference at Manchester on
Governance for the Twenty-first Century, and many of the contributors
(Heeks, McCourt, Minogue, Mundy and Polidano) were more practically
involved as advisers to the Presidential Commission on the Transformation of
the Public Service in South Africa in 1998. We hope that a little of the
enthusiasm, interest and commitment of these undertakings have survived to
enhance the contributions to this book.
The questions raised rarely produce unproblematic answers, and the
complexity of the diverse situations is compounded by the uncertain findings
of existing empirical research. We therefore have no wish to insist on
particular positions on public management reform, and sympathize with
policy-makers who face hard choices and dilemmas. We hope that our
contribution will help to clarify these dilemmas and choices, and demonstrate
clearly the outlines of the necessary reform agenda on which a properly
critical evaluation can be based.
We wish to express our great appreciation for the help given to us by Karen
Hunt, whose diligent efforts kept us on track to meet a tight deadline.
WILLYMCCOURT
MARTINMINOGUE
xii
