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Strukturelle Dimension des Public Managements
Abstract
Nach einleitenden Bemerkungen zum Einfluss der Gewährleistungsstaatsidee wird in Kap. 6 auf die allgemeinen Strukturprinzipien öffentlicher Organisationen eingegangen, die Bürokratisierung öffentlicher Dienste thematisiert und gleichzeitig werden Ansatzpunkte für Bürokratieabbau aufgezeigt. Danach wird die oben beschriebene Heterogenität der Verwaltungsstrukturen anhand des Spektrums institutioneller Organisationsformen zwischen Hierarchie und Markt dargestellt und auch ein Instrument zur Analyse der Leistungstiefe öffentlicher Aufgabenerfüllung vorgestellt. Die Rahmen- und Detailstrukturen der Verwaltungsorganisation werden vielfach kaum hinterfragt. Trotzdem gilt es gut die mit den unterschiedlichen Organisationsalternativen einhergehenden Vor- und Nachteile zu reflektieren, um Strukturentscheide sachgemäß fällen zu können. Schließlich wird der Prozess des Strukturwandels i. S. des Change Managements thematisiert. Change Management Konzepte, Umgang mit Widerstand und die Rollen der Führung im Wandel sind dabei zentrale Themen, die erläutert werden.
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In smart city contexts, voluntary citizen reporting can be a particularly valuable source of information for local authorities. A key question in this regard is what motivates citizens to contribute their data. Drawing on motivation research in social psychology, we examine the question of whether self-concern or other-orientation is a stronger driver of citizen reporting engagement. To test our hypotheses, we rely on a sample of users of the mobile application "Zurich as good as new" in Switzerland, which enables citizens to report damages and other issues in the city's infrastructure. Data was collected from two different sources: motivation was assessed in an online user survey (n=650), whereas citizen reporting engagement was measured by the number of reports per user from real platform-use data. The analysis was carried out using negative binomial regression. Our findings suggest that both self-concern and other-orientation are significant drivers of citizen reporting engagement, although the effect of self-concern appears to be stronger in comparison. As such, this study contributes to a better understanding of what motivates citizens to participate in citizen reporting platforms, which are a cornerstone application in many smart cities.
Längst sind die Zeiten vorbei, als die staatliche Verwaltung für ihre zumeist scharf abgegrenzten Aufgabenbereiche in vollkommener Eigenregie verantwortlich war. Dieser Strukturwandel öffentlicher Institutionen ist aus einer weiten Perspektive der sich abzeichnenden Umsystemveränderungen zu betrachten. Die grundlegenden Veränderungen im Staatsverständnis moderner Dienstleistungsnationen seit Beginn der 1990er Jahre kann daher als Folge mehrerer Krisenerscheinungen gesehen werden (vgl. Albrow 2001, S.183ff.; Coombes 1998, S.20ff.; Thom/Ritz 2000, S.26ff.).
Legitimationskrise: Die Möglichkeiten des Verwaltungsstaats reichen nicht mehr aus, die anstehenden Probleme der Marktwirtschaft selbständig zu lösen, weshalb die Legitimation des Verwaltungsstaats in Frage gestellt wird.
Interdependenzkrise: Die bisherigen Führungsformen im Verwaltungsstaat sind nicht geeignet, die Interdependenzen zwischen supranationalen Entwicklungen mit dem gleichzeitig anzutreffenden neuen Regionalismus zu bewältigen.
Leistungskrise: Überbeanspruchung und falscher Einsatz des staatlichen Leistungsapparats als Folge gesellschaftlicher Entwicklungen und in Konsequenz unproduktiver Umverteilung von Ressourcen im sozial-liberalen Marktsystem.
Governance is clearly a notion whose time has come. It appears to move easily across philosophical and disciplinary boundaries, diverse fields of practical application, the manifold scales of social life, and different political camps and tendencies. This terminological mobility enables it to organise significant narratives about contemporary social transformation. Yet it is also clear that governance is a polyvalent and polycontextural notion. Its meaning varies by context and it is being deployed for quite contrary, if not plain contradictory, purposes. And, by virtue of these terminological uncertainties, it is doubtful whether governance sans phrase can really provide a compelling theoretical entrypoint for analysing contemporary social transformation or a compelling practical entrypoint for coping with complexity. It is this paradox that I wish to pursue and resolve in the following reflections on governance, with the ultimate intention of providing a clear account of the nature and limitations of governance and meta-governance in a complex world.1
As public and private sector organizations work more frequently in partnership, managing uncertainties, problems and controversies becomes increasingly difficult. Despite sophisticated technology and knowledge, the strategic networks and games required to solve uncertainties becomes more complex and more important than ever before. This unique text examines such developments in the area of network strategy. Differentiating itself from other policy network approaches which mainly have a research focus, this text has a managerial orientation, presenting strategies and management recommendations for public and private sector organizations as well as the analytical tools required by practitioners seeking to support their own internal decision-making and strategy formulation. Tapping into the important and ever-growing area of risk and uncertainty management, this is a vital and long awaited staple for the arena, written by two leading authors in the field, and is key reading for students, scholars and policy makers seeking to understand the complexities of the network society. © 2004 Joop Koppenjan and Erik-Hans Klijn. All rights reserved.
Do managers in government perceive higher levels of red tape in their organizations than managers in industry? Most people would think so, but organizational researchers have often found that government organizations do not necessarily have higher levels of rule intensity than business firms. If there are higher levels in government, what explains their existence? Hal Rainey, Sanjay Pandey, and Barry Bozeman report on a survey of public and private managers' perceptions of red tape that supports some common assertions about red tape in government but that contrasts sharply with other assertions. The public and private managers differed little on general questions about rule enforcement Yet the public managers were much more likely than private managers to report that rules constrain the relation between managers performance and their pay and promotion. The authors assess several explanations of whether and why public managers may create red tape, including a goal ambiguity hypothesis, an insecurity hypothesis, and an expectancy hypothesis. The results show some support for the latter two hypotheses. The results also support the goal ambiguity hypothesis, but among both the public and private managers. The authors ultimately conclude that external rules and laws concerning such functions as personnel and procurement are the mast important sources of red tape in government. The authors call for more systematic analysis of red tape, including the use of methods such as those reported here, in support of current reform efforts aimed at reducing red tape.
This article reviews and discusses the empirical literature on interorganizational networks at the network level of analysis, or what is sometimes referred to as “whole” networks. An overview of the distinction between egocentric and network-level research is first introduced. Then, a review of the modest literature on whole networks is undertaken, along with a summary table outlining the main findings based on a thorough literature search. Finally, the authors offer a discussion concerning what future directions might be taken by researchers hoping to expand this important, but understudied, topic.
Although many efforts to improve the effectiveness of government agencies target bureaucratic red tape, little academic work has evaluated the implications of red tape for organizational performance. This article proposes and tests a model of organizational effectiveness that explicitly accounts for red tape and the mitigating effect of organizational culture. This multimethod study uses both quantitative data from questionnaires and qualitative data from in-depth interviews. Findings suggest that red tape in human resource systems and information systems has a negative effect on organizational effectiveness. However, a dimension of organizational culture, namely developmental, mitigates the negative effects of bureaucratic red tape.
This article presents what the authors have learned about managing networks of public, private and nonprofit service providers in the context of decentralized and devolved governmental regimes - what the authors have termed the hollow state. The characteristics of the hollow state are discussed along with two strategies for managing networks of organizations that jointly produce a public service - collaboration and contracting. The article revisits the authors' preliminary theory of network effectiveness, based on a four-city study of mental health in light of an evolutionary study conducted on one city's mental health system over four years.
Understanding Governance asks: * What has changed in British government over the past two decades, how and why? * Why do so many government policies fail? * What does the shift from government to governance mean for the practice and study of British government? This book provides a challenging reinterpretation which interweaves an account of recent institutional changes in central, local and European Union government with methodological innovations and theoretical analysis. It emphasizes: the inability of the 'Westminster model', with its accent on parliamentary sovereignty and strong executive leadership, to account for persistent policy failure; the 'hollowing out' of British government from above (the European Union), below (special purpose bodies) and sideways (to agencies); and the need to respond to the postmodern challenge, rethinking the methodological and theoretical assumptions in the study of British government.
Government reinvention advocates assert that less bureaucratic work environments will spark higher creativity, more risk-taking, and greater productivity in public employees. While government reinvention remains a topic of interest to scholars and practitioners alike, these particular arguments lack empirical support. In response, this article tests the relationship between different forms of bureaucratic control (formalization, red tape, and centralization) and reported employee perceptions and behavior in local governments. Analyzing mail survey data from a study of the employees of four cities in a midwestern state, this article finds that employee responses to bureaucratic control are not as straightforward as reinventionists expect. Different types of bureaucratic control are related to distinct employee responses and sometimes these responses are the very behaviors that reinventionists seek to trigger by reducing bureaucracy.
Contracting out public sector services and divesting public enterprises are reforms that have enjoyed widespread global popularity in recent years. Better services, lower prices and greater accountability are the promises made by politicians, senior executives, and investment companies when functions are moved from the public sector to private enterprise. But in Privatization, Graeme A. Hodge challenges these assumptions. Through an examination of hundreds of international studies on the performance of privatization activities, Hodge demonstrates that privatizing public services is often not the guaranteed panacea portrayed by its political supporters. Importantly, privatization activities can lead to modest gains, but there are also winners and losers in this reform. It therefore deserves far more care and balanced debate than it usually attracts.
Die Autoren legen mit diesem Buch den ersten politikwissenschaftlichen Lehrtext zum Thema Verwaltung und Verwaltungswissenschaften in Deutschland vor. Die spezifisch sozialwissenschaftlichen Perspektiven unterscheiden die Studie vom bislang vorliegenden vor allem juristisch geprägten Lehrmaterial. Dargestellt werden die Entwicklung und Perspektiven der Verwaltungswissenschaften sowie der institutionelle Aufbau, die internen Strukturen und Prozesse sowie die Entwicklungsphasen der öffentlichen Verwaltung in Deutschland.
The politicization of bureaucracy is a widespread strategy to increase the political control of ministerial departments in parliamentary democracies. It is, however, largely unknown why executive politicians promote some officials rather than others to high public office. Based on a unique dataset of all senior officials in German federal ministries and agencies that held office in the period 1997-2015, this article investigates whether partisan loyalty, political craft, and managerial competencies influence the chance of promotion to the highest civil service position in Germany (state secretary). We apply event history modelling to draw inferences on the relative importance of different selection criteria used by ministers when recruiting state secretaries from a candidate pool of senior officials. A key finding is that ministers consistently prefer politically loyal to non-loyal candidates. Although ministers also consider candidates’ political craft and selected managerial competencies, they are likely to trade-off partisan loyalty against those qualifications. The article contributes to the literature on politicization in the public sector by comparing potential and actual office holders and by including a broad set of selection criteria, moving beyond the literature’s dominating focus on partisan loyalty. The methodological approach developed in this article may well be transferred to other institutional contexts and used for comparative studies in this area.
Abstract: Ulf Papenfuß and Christina Schaefer; Management of State-Owned Enterprises and Public Corporate Governance: Basic Issues and Reform Perspectives Management of State-owned Enterprises; Public Corporate Governance; State-owned Enterprises The management and control of state-owned enterprises by public authorities and public corporate governance (PCG) are important topics for the future for both, the practice and the scientific debate because of the large number of state-owned enterprises (SOEs), the scope and heterogeneity of their tasks in the context of public service provision, the large number of their employees, and the high amount of investments undertaken by SOEs, and their debt ratio. The authors followed an invitation to publish in this issue an already existing contribution consisting of two parts which illustrate basics and reform perspectives of these topics for the current discussion. In the first part Christina Schaefer explains the main differences between the private and the public sector regarding the management context and object, outlines the need of a specific concept for the management of SOEs, and presents basics for its implementation. In the second part Ulf Papenfuß presents the conceptual basics of PCG and enforcement and regulation deficits, outlines potentials and challenges of PCG-codices as well as the benefits and ways to a prototype-model-PCG for all cities and Laender.
Eine unvermittelt geäußerte Forderung, eine von langer Hand geplante Intrige oder ein organisierter Arbeitskampf – Widerstand kommt im Arbeitsalltag in vielen Formen daher. In diesem Buch berichten über fünfzig Führungskräfte über konkrete Situationen, in denen sie Widerstand erlebt, empfunden oder selber geleistet haben. Man kann den Widerstand als unvermeidliche Reaktion auf Veränderung verstehen. Oder man kann genauer hinschauen, die Perspektiven aller Beteiligten offenlegen und daraus gemeinsam lernen.
Aus dem Inhalt:
Widerstand: Ganz normale Ausnahme
Offensichtlicher, versteckter und verdrängter Widerstand
Abkürzungen, die in die Sackgasse führen
Was hinter Widerstand eigentlich steckt: Erklärungsmodelle
Führung: Die Kunst, mit Widerstand produktiv umzugehen
«Erik Nagel gelingt es, die beschwerliche Erfahrung von Widerstand in Organisationen mit unterhaltsamer Leichtigkeit und mit vielen Beispielen ganz konkret ins Positive und Konstruktive zu wenden. Ein kluges und nachdenkliches Buch, das Augen öffnet und dazu einlädt, sich seiner Handlungsräume in solchen Situationen bewusst zu werden.»
Prof. em. Dr. rer. pol. Werner Müller, Universität Basel
«‹Glücksfall Widerstand› rückt den zu Unrecht zumeist negativ behafteten Widerstand ins richtige Licht. Erik Nagel führt uns vor Augen, dass wir Widerstand häufig auf Teufel komm raus vermeiden wollen und gerade dadurch den Widerstand erst hervorrufen. Stattdessen sollten wir uns mit Widerstand auseinandersetzen, weil es unsere Unternehmen weiterbringt.» Stefan Leumann, Unternehmer
From the 1980s on, governments all over the world have created large numbers of semi-autonomous agencies. The chapters in this book are evidence of this trend, which has since then become known as agencification (cf. Pollitt et al. 2004). Semi-autonomous agencies operate at arm’s length of the government; they carry out public tasks such as regulation, service delivery, and policy implementation. Compared to government bureaucracy, agencies face less hierarchical and political influence on their daily operations, and they have more managerial freedom. There is much controversy over the definition of agencies but a consensus has grown that an agency in terms of agencification concerns an organization that (1) is structurally disaggregated from the government and (2) operates under more businesslike conditions than the government bureaucracy (Talbot 2004a). Agencies can, for example, have a different financial system and personnel policies, although the degrees of financial, personnel and management autonomy vary per (type of) organization (Verhoest et al. 2010b). It is exactly this degree of variation between (types of) organizations that make it impossible to develop a more precise definition.
Der Zustand der deutschen Kommunalverwaltung wurde in den letzten Jahren sehr wechselhaft diskutiert: In den 70er und 80er Jahren galt die deutsche Kommunalverwaltung unter Kennern im Inland lange Zeit als Ausdruck des „Modells Deutschland“; Anfang der 90er Jahre schlug die Einschätzung angesichts des internationalen Vergleichs mit Spitzenstädten im Ausland um: die deutsche Kommunalverwaltung wies, gemessen an diesen Standards, erhebliche und strukturelle Innovationsschwächen auf. Hintergrund dafür ist, daß Deutschland die 80er Jahre sowohl im privatwirtschaftlichen wie auch im öffentlichen Sektor in bezug auf Produkt-, Struktur- wie Prozeßinnovationen im Verhältnis zum relevanten internationalen Wettbewerb praktisch „verschlafen“ hat (vgl. Jürgens/Naschold 1994). Seit Mitte der 90er Jahre sind indes enorme Anstrengungen in der Privatindustrie wie im öffentlichen Sektor festzustellen, die in den 80er Jahren aufgebrochenen Modernisierungsrückstände in einer gewaltigen Catch-up-Strategie wiedergutzumachen. Mit solchen Innovationsbemühungen sind die Kommunen in der Tat führend. Mit Abstand folgen die Länder; der Bund hinkt bezüglich der Innovationsentwicklungen des öffentlichen Sektors weit hinterher.
Entgegen weit verbreiteten Vorstellungen war es Joseph Schumpeter, der darauf aufmerksam machte, daß Innovation, das “Durchsetzen neuer Kombinationen”, das Zusammenwirken höchst unterschiedlicher Menschen erfordert:
“Und die Funktion des Durchführens neuer Kombinationen und die der Erweiterung unsrer Erkenntnis, die Funktion des Unternehmers und die Funktion des Erfinders sind ganz verschiedene Dinge. Der Unternehmer ist weder prinzipiell selbst Erfinder — wo er es ist, liegt eine zufällige Vereinigung verschiedener Funktionen vor-, noch ist er der Handlanger und Ordonnanzoffizier des Erfinders, so daß der Erfinder der eigentliche Unternehmer wäre.” (1. Aufl., 1912, S. 178).
How well equipped are today's public administrators to face the challenges they confront from the involvement of businesses, not-for-profits, other units of government, and even clients in complex patterns of program operations? Not very well, if judged by the extent to which practitioners and scholars have incorporated the network concept and its implications into their own work. Discussions in the field contain little to help practicing managers cope with network settings. In fact, conventional theory may actually be counterproductive when applied inappropriately to network contexts. And yet, these arrays are now consequential and becoming increasingly so. Practitioners need to begin to incorporate the network concept into their administrative efforts. The challenge for scholars is to conduct research that illuminates this neglected aspect of contemporary administration. The author sketches a set of agendas that offer prospects for helping to address this need.
Using a systematic item-development framework as a guide (i.e., item development, questionnaire administration, item reduction, scale evaluation, and replication), this article discusses the development and evaluation of an instrument that can be used to gauge readiness for organizational change at an individual level. In all, more than 900 organizational members from the public and private sector participated in the different phases of study, with the questionnaire being tested in two separate organizations. The results suggest that readiness for change is a multidimensional construct influenced by beliefs among employees that (a) they are capable of implementing a proposed change (i.e., change-specific efficacy), (b) the proposed change is appropriate for the organization (i.e., appropriateness), (c) the leaders are committed to the proposed change (i.e., management support), and (d) the proposed change is beneficial to organizational members (i.e., personal valence).
Five primary dimensions of organization structure were defined and operationalized; (1) specialization, (2) standardization, (3) formalization, (4) centralization, (5) configuration. From comparative data on these dimensions, in fifty-two different work organizations in England, scales were constructed to measure sixty-four component variables. This made it possible to construct a profile characteristic of the structure of an organization and to compare it directly with that of other organizations. Principal-components analysis was used to help in the interpretation of intercorrelations among the scales. The resulting factors suggested four basic dimensions of structure, conceptualized as structuring of activities, concentration of authority, line control of workflow, and size of supportive component. This multifactor result was considered to demonstrate that the concept of the bureaucratic type is no longer useful.
The taxonomy of structures of work organizations presented is based on three previously established empirical dimensions: structuring of activities, concentration of authority, and line control of workflow. On the basis of a sample of 52 organizations in the English Midlands, clusters of organizations on these three dimensions are examined and a sevenfold classification of organization structures is developed. These are identified as full bureaucracy, nascent full bureaucracy, workflow bureaucracy, nascent workflow bureaucracy, preworkflow bureaucracy, personnel bureaucracy, and implicitly structured organizations, their characteristic contextual features as to size, technology, dependence on other organizations, and ownership are demonstrated, and a possible developmental sequence is suggested. The results indicate that the concept of a single bureaucratic type is no longer useful, since bureaucracy takes different forms in different settings.
Public management and network management: An overview Governance and public management frequently take place in network-like situations. This is the case where sustainable patterns of interaction between actors have formed in the policy area in question and public problems are dealt with in highly interactive processes (see Chapter 2 ). It is remarkable that in a number of studies on policy networks such as those of Marin and Mayntz (1991), Marsh and Rhodes (1992) and recently that of Bressers, O'Toole and Richardson on water policies (1994), consideration is given to networks, their characteristics, factors which affect their formation and – to a lesser extent – their effects on policy outcome, whereas the impact of the existence of networks on governance and public management hardly receives attention. Yet an analysis of network management is precisely the vehicle for providing a perception of how networks can be utilized in endeavouring to developing ...
The HRO project is cast within a broader socio-political context, by first, reviewing its practical origins, its conceptual/logical framework, and a summary of the project's provisional findings, including a brief observation about the importance of a ‘culture of reliability.’Then some socio/political implications for HROs are explored as they assume the status of large technical systems (LTSs) and become quasi-public institutions. This paper ends with a reflection on the challenges of institutional trustworthiness that confront HRO operators, managers, and overseers.
The performance framework adopted for this review includes five dimensions — economic, social, democratic, legal and political issues. This article presents summary findings from a statistical (meta-analytic) review of the performance measurements found in the available international literature on privatisation and contracting-out government services… This enables an assessment to be made of the extent to which reform objectives appear to have been achieved in practice. The article discusses the gains which result from contracting reforms, and the extent to which these gains accrue to various stakeholders — whether community, customers, the organisation or government.