Public Administration Reforms: EU Enlargement and Transitional Countries - Developments and...
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![Page 1: Public Administration Reforms: EU Enlargement and Transitional Countries - Developments and Challenges UNIDEM CAMPUS Seminar on “Civil Service: the Authority.](https://reader035.fdocuments.net/reader035/viewer/2022062516/56649d805503460f94a64dcd/html5/thumbnails/1.jpg)
Public Administration Reforms: EU Enlargement and Transitional Countries -
Developments and Challenges
UNIDEM CAMPUS Seminar on “Civil Service: the Authority Serving the Public or the Public Serving
the Authority”, Trieste, 22-26 November 2004
Klaus Lenk
University of Oldenburg
D 26111 Oldenburg, Germany
http://www.uni-oldenburg.de/verwaltungswissenschaft
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Main Lessons
• There is no one best way of administrative reform, even though the public administrations of EU Member states are getting more similar
• E-government is now becoming the most important driver for administrative reform, helping to attain goals of “good governance”.
• A good management of change is crucial for reform success
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Reform Goals
• Efficiency was the dominant goal of New Public Management
• „Good Governance“ criteria suggest a wider range of goals. They include:– Democratic decision-making about public affairs– Effectiveness in executing the political will– Transparency to enhance legitimacy– Accountability– Capacity building for providing resilience– ...and also efficiency
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No „One Best Way“
• OECD Policy Brief on Public Sector Modernisation, October 2003, p.6: The mistaken perception that countries share a common problem is often accompanied by the idea that there is a [range] of solutions available, any or all of which will be beneficial. This misconception, peddled under the label of “best practice”, has had tragic consequences in some developing countries
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Developing Strategies for Reform
• Start from where you stand
• Build a vision
• Promote cooperation among all actors concerned
• Take contextual factors into account when making choices
• Assess the costs of reform steps
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Visions
• Visions are the outcome of long processes of strategic reflection
• Strategic thinking was generally absent in reform countries which hoped to adopt blueprints from abroad
• National experiences are important for finding the right way, even if reform goals are identical to those of other countries
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A Spirit of Cooperation
• New innovative networks of reform-minded people will have to emerge, if reform is not to remain lettre morte
• Protecting one’s “turf” is an understandable reaction, especially in times of momentous change
• But this reaction is extremely dangerous for reform success
• Promoting cooperation requires cultural changes which take time
• The role of consultants from outside can be very beneficial here
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Assessing the Costs of Reform
• The costs of reform are often difficult to assess, and they frequently outrun initial estimations.
• New technical devices and new organisational arrangements can be assessed fairly well. But the costs of providing training to the staff are difficult to assess
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E-Government as Main Driver for a Renewed Public Sector
The potential of E-Government unfolds in four steps, starting at the level of operative work. Hence the difficulties of institution-centred reforms to come to grips with changes of the public sector, which are „enabled“ by Information Technology
These four steps concern:
• Business processes
• Institutional choice
• Networked production of administrative output
• Fragmentation and integration at the macro level
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E-Government is not just a Fashion
• Information technology opens up new opportunities for designing production processes and institutions in the public sector
• The present E-Government hype did not yet live up to these chances and the related challenges. But increasingly– The enabling potential of IT is taken seriously– E-Government is losing ist character as a technological
fix– National governments develop visions in the light ot
this enabling potential about their future institutional shape
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„Enabling Factors“
• New man-machine relationships in doing administrative work, including a partial automation of many processes
• Re-use of information for other purposes than for which it was originally collected
• Bridging time and space
• Working in parallel instead of in sequential structures
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Business Processes
• IT enables new ways of working and communicating, which gradually impose themselves in clerical work
• The changed modes of working do not affect organisational structures and management directly, but via the business processes and daily work routines
• The ubiquity of information affords new arrangements of work in space, thus creating room for loosening the firm ties of public administration to a given territory, wherever this seems desirable
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Institutional Choice
• Information technology is not only „enabling“ new types of business processes; harnessed to human activity it constitutes a new (socio-technical) mode of production
• This calls for a changed organisational and institutional framework for many activities in the public sector. Information technology can be used to re-inforce existing structures, but this effect dominates only at early stages of development
• After having gained some experience with E-Government, actors become increasingly aware of an enlarged set of institutional choices which were not available to them before
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Networked Production of Administrative Output
• Among these new types of institutions are production networks: several units collaborate to produce a service in forms of „virtual organisation“
• In such networks, public, commercial and non profit organisations may cooperate closely, e.g. by splitting up business processes among them, according to their specific competences
• Yet it is still an open question to which extent production networks will be more efficient than traditional hierarchical structures
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Fragmentation and Cooperation
• Since virtual (networked) organisations are supposed to be more efficient than traditional ones, a simultaneous tendency toward more fragmentation of administrative production units and cooperation among them is gaining ground
• The basic institutional structures of public administration which in Germany remained unchanged since Napoleon are increasingly being questioned
• At the same time there is a growing recognition that effectiveness and efficiency are not the only values which characterise „good governance“. Legitimacy, resilience and accountability become more important as criteria for designing government institutions
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Service to Citizens and to the Economy
• One-stop „single-window“ administration is possble in many ways
• Often, the wrong priorities have been set in „advanced“ countries
• Rankings do not always measure true success, since specific national factors are not taken into account
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Integrated eGovernment An emerging architecture of ePublic Services:
• Spatial and organisational separation of service production and delivery
• Service delivery in Front Offices (both virtual and physical)
• Service production in Back Offices
• Seamless connections allowing „single-window“ service
• Enrichment of Front Offices with additional functions (commercial services, eDemocracy)
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An Integration Architecture
target group 1
targetgroup n
Mid-office
Assisted Local Serv.
Call Center
personalised Portal
Assisted Selfservice
Portal for Intermediary
Enduser-Portal
Back-office 1
Back-office n
SCM - WorkflowRoundtable collaboration
Process-driven integration
Common Repositories„Land, People, Economy“
Resource-driven integration
Customer-drivenintegration
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The Shape of the Public Administration of Tomorrow
• The predominant role of territory for structuring jurisdictions and their action draws to an end, except where a strong physical presence is required: institutional change may follow sooner or later
• A farewell to the Napoleonic structure of the executive branch of government?
• New roles for local and regional government
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Change Management
• Implementation remains the Achilles heel of administrative reforms
• Launching reform initiatives often brings political advantages to actors which thereby establish a reputation of reform-mindedness. It is much more difficult to carry such reforms through.
• Behavioural and cultural change is often crucial
• Timely information of staff and the public about reform goals and steps
• Routinisation is the most critical stage of a reform process.
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Conclusion
• Training of administrators and inducing cultural change with empathy are particularly important
• Senior managers and politicians need to acquire knowledge about
– strategies and tools for reform, including e-government
– recurring pitfalls and “stumbling stones” of innovation processes in the public sector
– the contextual factors which decide about success and failure in their respective countries