1. Comparative Public Sector Reform –Comparative Public Sector Reform –
Perspectives and ExperiencesPerspectives and Experiences
Professor Tom Christensen, Department of PoliticalProfessor Tom Christensen, Department of Political
Science, University of OsloScience, University of Oslo
Presentation at University of Zagreb, May 2013Presentation at University of Zagreb, May 2013

2. • 1. Main questions covered1. Main questions covered
• What are the main perspectives we can useWhat are the main perspectives we can use
to understand reform processes?to understand reform processes?
• What do they say about leaders’ control andWhat do they say about leaders’ control and
rational calculation?rational calculation?
• What are the main features and challenges ofWhat are the main features and challenges of
New Public Management and post-NPM?New Public Management and post-NPM?

3. • 2. Perspectives on reform processes2. Perspectives on reform processes
• A. Instrumental perspectiveA. Instrumental perspective
• Reform is necessary and possibleReform is necessary and possible
• Leaders control reforms and have clear goalsLeaders control reforms and have clear goals
• They basically achieve the effects they wantThey basically achieve the effects they want
• Main instrument is reorganizationMain instrument is reorganization ––
vertical/horizontal specialization/coordinationvertical/horizontal specialization/coordination

4. • B. Cultural perspectiveB. Cultural perspective
• A slow evolutionary path-dependentA slow evolutionary path-dependent
developmental process result in reformdevelopmental process result in reform
• Adaptation to internal pressure and externalAdaptation to internal pressure and external
pressure from task environmentpressure from task environment
• Reforms must be compatible with historical-Reforms must be compatible with historical-
cultural traditionscultural traditions

5. • C. Myth perspectiveC. Myth perspective
• Institutional environment create reformInstitutional environment create reform
mythsmyths
• Dominant norms for what isDominant norms for what is appropriate:appropriate:
• Knowledge/professions, organizationalKnowledge/professions, organizational
forms, systems, services and productsforms, systems, services and products
• Important to be seen as modern, to increaseImportant to be seen as modern, to increase
legitimacylegitimacy

6. • 3. Main features of New Public Management3. Main features of New Public Management
• Based in new institutional economic theoryBased in new institutional economic theory
• Efficiency orientation - use of markets,Efficiency orientation - use of markets,
competition, contracts and privatizationcompetition, contracts and privatization
• But also based in management theory – ‘let orBut also based in management theory – ‘let or
make the managers manage’make the managers manage’
• Combination of centralization and autonomyCombination of centralization and autonomy

7. • Structural fragmentation - increasedStructural fragmentation - increased
structural devolution and horizontalstructural devolution and horizontal
specializationspecialization
• Establishing agencies, regulatory agenciesEstablishing agencies, regulatory agencies
and public enterprises with a lot of autonomyand public enterprises with a lot of autonomy
• More service and consumer orientation –More service and consumer orientation –
choice and participationchoice and participation

8. • Main challenges of NPM:Main challenges of NPM:
• Deliver on efficiency – balance efficiency andDeliver on efficiency – balance efficiency and
other central considerations and interestsother central considerations and interests
• Cope with potential undermining of politicalCope with potential undermining of political
controlcontrol
• Handle structural fragmentationHandle structural fragmentation
• Balance roles as consumers/users and citizensBalance roles as consumers/users and citizens

9. • 4. Why the need for post-NPM-reforms?4. Why the need for post-NPM-reforms?
• A. NPM could not deliverA. NPM could not deliver
• Not evident that the economy in large hasNot evident that the economy in large has
improved in the main NPM countriesimproved in the main NPM countries
• Mixed results concerning the increasedMixed results concerning the increased
efficiency of servicesefficiency of services
• Decreasing quality and increased social inqualityDecreasing quality and increased social inquality

10. • B. Major weakening of political controlB. Major weakening of political control
• It was promised that political control shouldIt was promised that political control should
increase or stay the same, but means changeincrease or stay the same, but means change
• Reality seems to show both a formal and realReality seems to show both a formal and real
undermining of political controlundermining of political control
• More problems of capacity and coordinationMore problems of capacity and coordination
among top leadersamong top leaders

11. • C. More insecure and unstable worldC. More insecure and unstable world
• Fear of terrorism drives reforms:Fear of terrorism drives reforms:
• Increasing demands of stronger control andIncreasing demands of stronger control and
coordinationcoordination
• Fear of catastrophes and crises:Fear of catastrophes and crises:
• Pandemics, tsunamies, global financial andPandemics, tsunamies, global financial and
environmental problemsenvironmental problems

12. • 5. What is typical for post-NPM reforms?5. What is typical for post-NPM reforms?
• More emphasis on strengthening the centralMore emphasis on strengthening the central
political and administrative level againpolitical and administrative level again
• Increased control and capacityIncreased control and capacity
• More coordination in and between sectors:More coordination in and between sectors:
• Create cross-sectoral program and projectsCreate cross-sectoral program and projects

13. • Demands for more pro-active leadership rolesDemands for more pro-active leadership roles
• Leaders must have a broad competenceLeaders must have a broad competence
• More pragmatic cooperation among publicMore pragmatic cooperation among public
organizations - smart practiceorganizations - smart practice
• Value-based management importantValue-based management important
• More focus on cultural cooperation andMore focus on cultural cooperation and
common values – counter-acts sub-culturescommon values – counter-acts sub-cultures

14. • 6. Possible future development6. Possible future development
• Governments in reality a complex and hybridGovernments in reality a complex and hybrid
combination of:combination of:
• ””Old public administration” – NPM – post-Old public administration” – NPM – post-
NPM featuresNPM features
• A layering process – ‘archeological’ featuresA layering process – ‘archeological’ features
• What are the effects of such combination?What are the effects of such combination?

15. • Positive effects?:Positive effects?:
• Give political and administrative leadersGive political and administrative leaders
flexibility – ‘ambiguity is good’flexibility – ‘ambiguity is good’
• Increased legitimacy through ‘pleasing’Increased legitimacy through ‘pleasing’
• Negative effects?:Negative effects?:
• Problems of control and accountabilityProblems of control and accountability
• Chaos and lack of goal achievement?Chaos and lack of goal achievement?