Why Manage?

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Why Manage?
PMPA 809 Introducing the Public Administration
and Management Context
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Roundtable Coming Up

• Who you are and your expectations coming in 5
  minutes

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First me..

• E-mail is best, any day and time.
• You have my co-ordinates use my cellular number
  as I move around.
• I am here PMPA days and happy to set up a
  meeting, but set it up in advance.

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Now You

• Who you are.
• What you do.
• What you are looking for.

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Over-riding Themes

• Understanding the basis of public administration
  Public sector values in management
• A framework for understanding management
• The realities of managerial life
• Trends of change and reform and underlying
  elements of continuity

No Magic Bullets, ready clichés to offer or nice
sounding bromides this is a messy business.
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How we are going to do this

• Lectures with discussion
• Class group exercises a word on getting started
• Case studies my overall approach
• Stories yours and mine
• Guests
• David Szwarc, CEO, Peel
• Margaret Biggs, federal Deputy Minister

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The Course Work Readings, Assignments and
Assessment

• All readings are posted on Moodle
• All assignments are posted on Moodle
• All assignments are expected to be on time.
• Any delays require a notification to me it pays
  to communicate.

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Assignments and Marking
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Leave your guns at the door or put them on
vibrate
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My assumptions about you present and future
leaders in the public sector this course is
designed to signal to you the fundamental
underpinnings of management to be successful at
that.
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• Your experience counts and we want to draw on it
  as we look at issues of management.
• Put yourself into the managers position as you
  look at this material you are in the play, not
  outside it.
• But, in the end, this is not a group therapy
  session so keep your examples relevant and useful
  to everyone.

Listen up and respect each others views.
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What I Look For in Marking
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Assignments as Live Briefing Notes
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An Effective Case Study.
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Why Management and Why Core?

• Great policy poorly executed is poor policy
• How things are done (managed) in the public
  sector often as important as what is done.
• In government, management is how we execute or
  implement, i.e., bring to realization, public
  policy.
• No amount of good policy will change anything
  without good execution.
• This requires more than management, but in the
  end, the people, regulations, capital and
  resources must be managed

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Implementation is worth studying precisely
because it is a struggle over the realization of
ideas. It is the analytical equivalent of
original sin. There is no escape from
implementation and its attendant
responsibilities. Pressman and Wildavsky,
Implementation How Great Expectations in
Washington are Dashed in Oakland or, Why Its
Amazing that Federal Programs Work at all , 3rd
edition. 1980
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Three Principal Modules

• Public administration and the application of
  management theory to it,
• Whole of Government management and
  administration issues
• Delivery and Implementation at the program level

This course is not about techniques of
management, but rather how management fits into
the over-riding concept of public administration.
But it is about the craft of management.
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Management Framework
Whole of Government View of Management
Delivering Public Goods The Pillars of Public
Management Management
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The heart of public administration is the nexus
between political will to achieve certain things
policies, goods, benefits, outcomes, you name
it and the means to achieve them.
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Some Common Themes in Managerial Thinking
Trade-offs, Balancing and Tensions

• Accountability (following the rules) versus
  flexibility (getting the job done)
• Public sector management is different from
  private sector how and where is an important
  factor
• New versus old public management changes, fads,
  challenges
• Systems versus people

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Some Common Themes in Managerial Thinking
Trade-offs, Balancing and Tensions

• Organizations, how they work and what they do
• Management theories versus the life of the
  manager
• Vertical and horizontal management
• Managing up and managing down
• Knowing what is happening, understanding it and
  speaking to performance
• The search for better cheaper faster processes.

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Where it all began a quick history of management
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King Hammurabi, ruler of the Old Babylonian
Kingdom 1792-1750 BCE)
An early model of efficient public administration
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Hammurabi receives the Code of Laws from Sun God
To cause justice to prevail in the country,To
destroy the wicked and the evil,That the strong
may not oppress the weak
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• 337 BCE Chinese philosopher Shen Buhai wrote a
  treatise on the same topic. Main points
• Seniority
• Merit rating
• Official statistics
• Written reports about government activities
• From 165 BCE, Chinese officials were selected by
  examination

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Managing with Moses the First Consultants Report

• We dont know, but we have traced the first
  management consultant Jethro, father-in-law of
  Moses
• As Moses took on all tasks of governing the
  Israelites in the desert classic A type, theory
  X kind of guy, Jethro came along offered plenty
  of advice
• Check out Exodus 18 think of it as a standard
  consultants report

Which came first?
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• And Moses father said unto him, the thing that
  thou doest is not good. Thou wilt surely wear
  away, both thou, and this people that is with
  thee for this thing is too heavy for thee thou
  are not able to perform it thyself alone.

Risk Analysis
Workload Analysis
Time to Delegate
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• Thou shalt provide out of all the people able
  men, such as fear god, men of truth, hating
  covetousness and place such over them, to be
  rulers of thousands, and rulers of hundreds,
  rulers of fifties, and rules of tens.
• And let them judge the people at all seasons
  and it shall be, that every great matter they
  shall bring unto thee, but every small mater they
  shall judge so shall it be easier for thyself,
  and they shall bear their burden with thee and
• Moses harkened to the voice of his father in law,
  and did all that he had said.

Competency-Based Staffing
Chain of Command
Delegation
The Pay Off
Implement
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Never Underestimate the Impact of Machiavelli

• Stability exists only in the grave not in this
  life.
• If you are going to be a leader, you have a
  simple choice either dominate or be dominated.
• Keys to leading
• See the world as it is, good, bad or ugly
• Act with humility recognize there are forces
  over which you have no control.
• Be ready to react
• Aggressively exploit the chances granted to you
  by Fate.
• Create, hope for, and use luck.
• Never whine.
• Recognize the uniqueness of the moment and
  circumstance (fallacy of best practice).

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0
Management Perspectives Over Time
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Max Weber (1864-1920) The Origins of Modern
Bureaucratic Theory

• Created an ideal type for this new idea of
  bureaucracy designed to
• Eliminate entrenched patronage
• End capricious decision-making by frivolous
  nobility
• Provide a system for managing and performing
  repetitive tasks that involved little or not
  discretion
• Impose order and efficiency
• Create a clear understanding of the service
  provided and reduce arbitrariness common goods
  for all
• Ensure clear accountability and limit discretion

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Characteristics of Weberian Bureaucracy
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Concept of permanent employment
Division of labor with Clear definitions of
authority and responsibility
Personnel are selected and promoted based on
technical qualifications
Positions organized in a hierarchy of authority
Managers subject to rules and procedures that
will ensure reliable predictable behavior

• Administrative acts
• and decisions recorded
• in writing

• Management separate
• from the ownership
• of the organization

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Frederick W. Taylor (1856-1915) and Scientific
Management

• His most famous technique was the Time and Motion
  Study to create what he called scientific
  standards for performing specific tasks
• These are not just production targets but
  measurements of the very action, i.e. body
  movements that achieved maximum efficiency.
• This would provide the basis of production
  planning and the means to measure a workers
  performance against an ideal standard.
• On the management side, there was the need to
  scientifically analyze and design work flow in
  the most efficient manner.
• Taylor's contribution affects both the notion of
  individual labour and the idea that ideal
  management regimes can be designed as well.

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Frederick W. Taylor (1856-1915) and Scientific
Management

• Taylor would feel warm and fuzzy with the notion
  that all MacDonald's Restaurants can and should
  run alike using the same manual regardless of the
  number of under-aged, under-paid people that are
  running them he might site MacDonald's as proof
  of the scientific school
• The Scientific School is built on the conceptual
  separation of strong backs (workers) from strong
  minds (managers)

The Science in Scientific fakery, lies and
manipulation.
Taylor, Frederick W., The Principles of
Scientific Management, New York W.W. Norton,
1967
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Scientific Management
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Separation of brain and brawn.

• Contributions
• Argued but did not prove the importance of
  compensation for performance.
• Initiated the careful (or not) study of tasks and
  jobs.
• Demonstrated the importance of personnel and
  their training.
• Focus on the workers performance.
• Criticisms
• Did not appreciate social context of work and
  higher needs of workers.
• Did not acknowledge variance among individuals.
• Tended to regard workers as uninformed and
  ignored their ideas
• Fundamentally exploitative.

Focus on the work not the person.
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Henri Fayol 1841-1925Examples of General
Principles of Management
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• Division of work
• Unity of command
• Unity of direction
• Scalar chain unbroken chain of command

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Mary Parker Follett 1868-1933
0

• Importance of common super-ordinate goals for
  reducing conflict in organizations
• Popular with businesspeople of her day
• Overlooked by management scholars
• Contrast to scientific management
• Reemerging as applicable in dealing with rapid
  change in global environment
• Leadership importance of people vs. engineering
  techniques

Concepts such as ethics, power and empowerment
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Mary Parker Follett (1868-1933)

• She introduced the idea of Circular Response
  people interact in ways that influence both
  parties an early articulation of modern
  communications theory without all the boxes,
  connectors and arrows
• Follett argued that intelligent, trained
  individuals are capable of taking their cues from
  the situation and respond accordingly rather than
  requiring careful structure to guide their
  actions the Giving of Orders, 1926
• She advocated Integration the need to bring
  together diverse elements into a whole

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Chester Barnard 1886-1961
0

• Informal Organization
• Cliques
• Naturally occurring social groupings
• Acceptance Theory of Authority
• Free will
• Can choose to follow management orders

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Gulick and Urwick (1930) The Scientific Theory
of Organization

• Gulik, Luther and Urwick. Lyndall, editors,
  Papers on the Science of Administration, New
  York Augustus M. Kelly, 1969
• Gulick and Urwick moved away for the work being
  performed
• They tried to apply Taylors commitment to
  scientific inquiry to create ideal
  organizations and organizational models
• In that sense, they reflected both Taylor and
  Weber.

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Gulick and Urwick (1930) The Scientific Theory
of Organization

• They also introduced a set of language and issues
  that continue in our organizational culture
• Span of Control the number of subordinates who
  report to one supervisor
• Repetitive versus highly varied work determines
  span of control and required level of supervision
• Level of skill of subordinates as a determinant
  of hierarchy
• Extent of geographical decentralization
• Overall stability of the organization

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Gulick and Urwick (1930) The Scientific Theory
of Organization

• Provided an honest recognition of the complexity
  of ideal organizational design, leaving in the
  end the impression that all such designs are a
  compromise based on some principles that they put
  forward
• What is the purpose of the specific function
• What is the process being used and can various
  workers applying the same process be put together
  into one unit
• Is there a client and who is it.

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The Origins of PODSCORB

• Gulick and Urwick gave us that enduring
  description of the activities of an executive
  POSDCORB
• Planning
• Organizing
• Staffing
• Directing
• Coordinating
• Reporting
• Budgeting
• It is also here that we see the first discussion
  of Line and Staff Functions. These roles continue
  to play important roles in organizational design

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From Organization Design and the Application of
Science to Organizational Development and the
Humanistic Approach

• Apparent opposition between the scientific
  structural approach and the humanistic one
• Most of early scientific thinking treated workers
  as units to be redesigned as best you can with
  imperfect entities like these

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From Organization Design and the Application of
Science to Organizational Development and the
Humanistic Approach

• Important Elements in the humanistic approach
• The role of informal culture in the organization
• The interplay between formal and informal culture
  and rules
• The role of power in organizations
• Leadership as a task separate from formally
  ascribed power
• The role of communications and the emergence of
  communications theory
• Change and change management
• The focus of later work is on workers as people
  involved in a series of dynamic processes in the
  work

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Recent Historical Trends
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• Systems Theory
• Total Quality Management (TQM)
• Learning Organizations
• Lean

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Systems View of Organizations
0
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Contingency View of Management
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Exhibit 2.6
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TQM
0

• Focuses on managing the total organization to
  deliver quality to customers.
• Four significant elements are
• Employee involvement
• Focus on the customer
• Benchmarking
• Continuous improvement

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Elements of a Learning Organization
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Team-Based Structure
Learning Organization
Open Information
Empowered Employees
Exhibit 2.7
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The philosophy of W. Edwards Deming and the
Origins of Lean

• "Dr. W. Edwards Deming taught that by adopting
  appropriate principles of management,
  organizations can increase quality and
  simultaneously reduce costs (by reducing waste,
  rework, staff attrition and litigation while
  increasing customer loyalty). The key is to
  practice continual improvement and think of
  manufacturing as a system, not as bits and
  pieces."

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The Deming System of Profound Knowledge

• Deming advocated that all managers need to have
  what he called a System of Profound Knowledge,
  consisting of four parts
• Appreciation of a system understanding the
  overall processes involving suppliers, producers,
  and customers (or recipients) of goods and
  services
• Knowledge of variation the range and causes of
  variation in quality, and use of statistical
  sampling in measurements
• Theory of knowledge the concepts explaining
  knowledge and the limits of what can be known
• Knowledge of psychology concepts of human nature.

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Snapshot of Lean

• The purpose of lean is to remove all forms of
  waste from the value stream.
• Waste includes cycle time, labor, materials, and
  energy.
• The chief obstacle is the fact that waste often
  hides in plain sight, or is built into
  activities.

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Peter Drucker Where Do You Start?

• Drucker is prolific and hard to characterize
• Squarely in the humanistic school
• Behind much of the early advocacy for the
  participative school of management
• Advocated breaking down of barriers created by
  specialization and focusing all parts of the
  organization on its overall goals
• We see here an early focus on mission,
  horizontality, integration and teamwork
• He also supported the generic view that
  management itself had similar function no matter
  where it took place setting objectives,
  organizing, motivating and communicating,
  measuring, developing people

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Henry Mintzberg and the Empirical School of
Management

• Mintzberg actually looked at what manager did in
  real life and worked towards his general
  conclusions from there
• His seminal work, The Nature of Managerial Work
  was published in 1973
• His most recent book, Managing Publicly
• Argued that what managers did, when successfully
  carrying out their responsibilities, was
  substantially different from much business theory

More to follow next month.
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Karl Weick and Organizational Resilience

• Role of complexity theory
• Concepts that organizations have fissures and
  fragilities that require new ways of
  understanding them role of managers in
  sensemaking
• Has had and will have a major impact on managing
  security issues
• Concepts of adaptability and resilience in
  operations and emergencies

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Karl Weick and Organizational Resilience

• Preoccupation with developing high-reliability
  organization. These are organizations that can
  carry out extraordinarily complex tasks quickly
  with few errors and almost no catastrophic
  failures.
• Highly mindful organizations characteristically
  exhibit
• a) Preoccupation with failure,
• b) Reluctance to simplify
• c) Sensitivity to operations,
• d) Commitment to Resilience, and
• e) Deference to Expertise.

Risk Management is Key to Resilience
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Karl Weick and Organizational Fragility

• Increasing focus on learning from failure and not
  simply on successes tricky political dimension
  of accepting failure.
• Concept of mindfulness.

By mindfulness we mean the combination of
ongoing scrutiny of existing expectations,
continuous refinement and differentiation of
expectations based on newer experiences,
willingness and capability to invent new
expectations that make sense of unprecedented
events, a more nuanced appreciation of context
and ways to deal with it, and identification of
new dimensions of context that improve foresight
and current functioning. Weick and Sutcliffe,
Managing the Unexpected
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Management gurus purveyors of useful theory or
sellers of 'snake-oil'?

• Populizer of ideas and charger of high fees
• Great attraction to the slogans, slick acronyms
  and anthemic solutions (the Cold Play of
  management)
• Often strike a cord, offer a useful insight, get
  people excited
• Seldom based in research or proven.
• Management gurus try not to concern themselves
  with the vagaries of organisations. Success is
  possible if you listen to their formula.
• Real life is messier.

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Concluding Thoughts and Linkages

• Tension between what managers actually do on a
  daily basis and what they do theoretically
• Social scientists build elegant, logically
  consistent models public managers deal with
  mess, real-world problems. Fred Thompson,
  Atkinson Graduate School of Management,
  Willamette University
• Recent changes in public administration and
  management thinking are shifting traditional
  thinking New Public Management

More Tomorrow
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Concluding Thoughts and Linkages

• Theme of tension between structure and people
  the human management school versus the
  systems/structural view
• Theme of tension between accounting and
  controlling and acting and delivering
• Change versus continuity change and continuity

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Concluding Thoughts and Linkages

• Emerging theme, especially post 9/11, of
  organizational reliability, capacity to detect
  and correct errors, especially in a highly
  political and transparent environment Karl Weick
• Principles of action (managing for flexibility)
  versus principles of structure (managing for
  accountability)

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Concluding Thoughts and Linkages

• Public sector overlay more than just politics
  accountabilities, transparencies qualitatively
  different
• In the 21st century we have moved into a
  post-bureaucratic world. The implementation of
  public policy is no longer directed by government
  in a top-down fashion. Instead, policies take
  shape through bottom-up processes and networks
  that are loosely managed by government incentives
  rather than dictated by government fiat in rigid
  bureaucratic structures.

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Signs for a spouse that your partner has gone
overboard on management

• He/she.
• Gives Valentines Day card that have bullet
  points.
• Develops an agenda for the long week-end at the
  cottage.
• Refers to parental guidance as achieving
  downstream impact.
• Refers to your kids as major files.
• Refers to those intimate moments as win-win
  situations.
• Refers to the bathroom as a robust system where
  the situation is fluid.
• Prepares key messages for dinner conversation.
• Designates mother-in-law as stakeholder
  relationship.
• Refers to first-born as the template.