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TowardaNewPublicAdministrationGeorgeFredericksonTowardaNewPublicAdministraPresenttheauthor’sinterpretationasitemergedattheMinnowbrookConferenceonNewPublicAdministration.DescribehowthisinterpretationandsynthesisofnewPublicAdministrationrelatestothewiderworldofadministrativethoughtandpractice.InterpretwhatnewPublicAdministrationmeansfororganizationtheoryandviceversa.Presenttheauthor’sinterpretThenewnessisinthewaythefabriciswoven,notnecessarilyinthethreadsthatareused,andinargumentsastotheproperuseofthefabric.Whatarethethreadsofpublicadministration?Pursuitofthesebasicvalues:representativeness,politicallyneutralcompetence,andexecutiveleadership.Azero-sumgamebetweenadministrativeefficiencyandpoliticalresponsiveness.Thesegrossgeneralizationsfailtoaccountforthewide,oftenrich,andsometimessubtlevariationthatrestswithin.ThenewnessisinthewaytheWhatisNewPublicAdministrationAllareemployedbypublicagenciesandeachspecializationorprofessionhasitsownsubstantivesetofobjectivesandthereforeitsrationale.Publicadministrationistheefficient,economical,andcoordinatedmanagementoftheservices.Thefocushasbeenontop-levelmanagementorthebasicauxiliarystaffservice.TherationaleforPublicAdministrationisalwaysbettermanagement.NewPublicAdministrationaddssocialequitytotheclassicobjectivesandrationale.WhatisNewPublicAdministratConventionalorclassicPublicAdministrationseekstoanswereitherofthesequestions:(1)Howcanweoffermoreorbetterserviceswithavailableresources?(2)Howcanwemaintainourlevelofserviceswhilespendinglessmoney?NewPublicAdministrationaddsthisquestion:Doesthisserviceenhancesocialequity?ConventionalorclassicPublicSocialEquityPluralisticgovernmentsystematicallydiscriminatesinfavorofestablishedstablebureaucraciesandtheirspcializedminorityclienteleandagainstthoseminoritieswholackpoliticalandeconomicresources.APublicAdministrationwhichfailstoworkforchangeswhichtrytoredressthedeprivationofminoritieswilllikelybeeventuallyusedtorepresstheseminorities.SocialEquityPluralisticgoverTheproceduresofrepresentativedemocracypresentlyoperatesinawaythateitherfailsoronlyverygraduallyattemptstoreversesystematicdiscriminationagainstdisadvantagedminorities.Socialequity,then,includesactivitiesdesignedtoenhancethepoliticalpowerandeconomicwell-beingoftheseminorities.TheproceduresofrepresentatiAfundamentalcommitmenttosocialequitymeansthatnewPublicAdministrationattemptstocometogripswithDwightWaldo’scontentionthatthefieldhasneversatisfactorilyaccommodatedthetheoreticalimplicationsofinvolvementin“politics”andpolicy-making.NewPublicAdministrationattemptstoansweritinthisway:Administratorsarenotneutral.Theyshouldbecommittedtobothgoodmanagementandsocialequityasvalues,thingstobeachieved,orrationales.AfundamentalcommitmenttosoAfundamentalcommitmenttosocialequitymeansthatnewPublicAdministrationisanxiouslyengagedinchange.Simplyput,newPublicAdministrationseekstochangethosepoliciesandstructuresthatsystematicallyinhabitsocialequity.Thisisnotseekingchangeforchange’ssake,butseekingthechangeswhichwouldenhanceitsobjectives—goodmanagement,efficiency,economy,andsocialequity.AfundamentalcommitmenttosoAcommitmenttosocialequityinvolvesattemptstofindorganizationalandpoliticalformswhichexhibitacapacityforcontinuedflexibilityorroutinizedchange.NewPublicAdministrationseeksnotonlytocarryoutlegislativemandatesasefficientlyandeconomicallyaspossible,buttobothinfluenceandexecutepolicieswhichmoregenerallyimprovethequalityoflifeforall.AcommitmenttosocialequityClassicPublicAdministrationemphasizesdevelopingandstrengtheninginstitutionswhichhavebeendesignedtodealwithsocialproblems.ThePublicAdministrationfocus,however,hastendedtodriftfromtheproblemtotheinstitution.NewPublicAdministrationisconcernedlesswithbuildinginstitutionsandmorewithdesigningalternatemeansofsolvingpublicproblems.Thesealternativeswillnodoubthavesomerecognizableorganizationalcharacteristicsandtheywillneedtobebuiltandmaintained,butwillseektoavoidbecomingentrenched,nonresponsiblebureaucraciesthatbecomegreaterpublicproblemsthanthesocialsituationstheywereoriginallydesignedtoimprove.ClassicPublicAdministrationNewPublicAdministrationadvocateswhatcouldbebestdescribedas“second-generationbehavioralism”,whichemphasizesthepublicpartofPublicAdministration.Thesecond-generationbehavioralistisless“generic”andmore“public”thanhisforebear,less“descriptive”andmore“prescriptive”,less“institutionoriented”andmore“client-impactoriented”,less“neutral”andmore“normative”,anditishoped,nolessscientific.NewPublicAdministrationadvoOrganizationTheoryandNewPublicAdministrationUnderstandingofanyphenomenonrequriesseparatingthatphenomenonintopartsandexaminingeachpartindetail.ThenewPublicAdministrationcallsforadifferentwayofsubdividingthephenomenonsoastobetterunderstandit:theintegrativeprocess;theboundary-exchangeprocess;andthesocio-emotionalprocess.OrganizationTheoryandNewPuTheDistributiveProcess(1)Externaldistribution.Cost-utility/cost-benefitanalysisisthechieftechniqueforattemptingtounderstandtheresultsofthedistributiveprocess.Projectthelikelycostsandbenefitsofalternativeprograms.Policy-outcomesanalysisattemptstodeterminethebasisfactorsthatinfluencesordeterminepolicyvariation.EquityinthedistributionofgovernmentserviceswithinajurisdictionTheDistributiveProcess(1)ExtTheDistributiveProcess(2)Internal-organizationdistribution.Thereisaneedtodevelopatheorywhichaccountsforthepresenceofpublicadministratorsconsiderablylesswillingtobargainandmorewillingtotakepoliticalandaministrativerisks.Whenpublicadministratorsleavethesafeharborof“goodmanagement”,whatmightoccur?TheDistributiveProcess(2)IntTheintegrativeprocessNPAadvocatesmodifiedhierarchicsystemmeanstomodifytraditionalhierarchiesArelativetoleranceforvariationAwillingnesstotradeincreasesininvolvementandcommitmenttotheorganizationforpossibledecreasesinefficiencyandeconomyparticularlyintheshortrunTwoseriousproblemswiththeadvocacybyNPAoflessformalintegrativeprocessesAlackofPAspecialistswhoareessentiallyprogrambuildersInherentconflictbetweenhigherandlower-leveladministratorsinlessformalintegrativesystemsTheintegrativeprocessNPAadvTheboundaryexchangeprocessGeneralrelationshipbetweenthepubliclyaministeredorganizationanditsreferencegroupsandclientsAndrelationshipbetweenlevelsofgovernmentinafederalsystem.AconsiderablyhigherclientinvolvementisnecessaryonthepartoftheseminoritieswhohavenotheretoforebeeninvolvedThedevelopmentofnewmeansbywhichadministratorsrelatetotheirlegislaturesTheboundaryexchangeprocessGThesocioemotionalprocessSocioemotional-trainingtechniqueswillbeutilizedtoaidinthedevelopmentofdecentralizedandpossiblyproject-orientedorganizationalmodes.WhileNPAiscommittedtowidersocialequity,theforegoingshouldmakeitclearthatamorenearlyequitableinternalorganizationisalsoanobjective.ThesocioemotionalprocessSociConlusions(1)Whatarethelikelyresultsforapracticingpublicadministrationworkingfromsuchanormativebase?ClassicPAonthebasisofitsexpressedobjectivescommonmlyhadthesupportofbusinessmenandthearticulateandeducatedupperanduppermiddleclass.IfNPAattemptstojustifyorrationalizeitsstanceonthebasisofsocialequity,itmighthavetotradesupportfromitstraditionalsourcesforsupportfromthedisadvantagedminorities.NPAmightencountersubstantialoppsitionfromelectedofficialsforitsfundamentalinvolvementinshapingsocialpolicy.Conlusions(1)WhatarethelikeConlusions(2)Whatarethelikelyresultsforapracticingpublicadministrationworkingfromsuchanormativebase?NPAmightwellfosterapoliticalsysteminwhichselectedofficalsspeakbasicallyforthemajorityandforthepraviledgedminoritieswhilecourtsandtheadministratorsarespokesmenfordisadvantagedminorities.WhatofNPAandacademia?TheoryMethodacademyConlusions(2)WhatarethelikeConlusions(3)WhatofNPAandacademia?Theory:theuniquenessofpublicorganizationwillbestressed.Internaladministrativebehavior’scenterpositioninpawillbetakenbyastrongemphasisonthedistributiveandboundary-exchangeprocess.MethodQuantitativelyinclinedpublicorganizationtheorists.Welfareeconomics(socialequityinsteadofprofit)Behaviorallyinclined–consociatedmodelAcademyPublicadministration.Publicservice.Conlusions(3)WhatofNPAandaTowardaNewPublicAdministrationGeorgeFredericksonTowardaNewPublicAdministraPresenttheauthor’sinterpretationasitemergedattheMinnowbrookConferenceonNewPublicAdministration.DescribehowthisinterpretationandsynthesisofnewPublicAdministrationrelatestothewiderworldofadministrativethoughtandpractice.InterpretwhatnewPublicAdministrationmeansfororganizationtheoryandviceversa.Presenttheauthor’sinterpretThenewnessisinthewaythefabriciswoven,notnecessarilyinthethreadsthatareused,andinargumentsastotheproperuseofthefabric.Whatarethethreadsofpublicadministration?Pursuitofthesebasicvalues:representativeness,politicallyneutralcompetence,andexecutiveleadership.Azero-sumgamebetweenadministrativeefficiencyandpoliticalresponsiveness.Thesegrossgeneralizationsfailtoaccountforthewide,oftenrich,andsometimessubtlevariationthatrestswithin.ThenewnessisinthewaytheWhatisNewPublicAdministrationAllareemployedbypublicagenciesandeachspecializationorprofessionhasitsownsubstantivesetofobjectivesandthereforeitsrationale.Publicadministrationistheefficient,economical,andcoordinatedmanagementoftheservices.Thefocushasbeenontop-levelmanagementorthebasicauxiliarystaffservice.TherationaleforPublicAdministrationisalwaysbettermanagement.NewPublicAdministrationaddssocialequitytotheclassicobjectivesandrationale.WhatisNewPublicAdministratConventionalorclassicPublicAdministrationseekstoanswereitherofthesequestions:(1)Howcanweoffermoreorbetterserviceswithavailableresources?(2)Howcanwemaintainourlevelofserviceswhilespendinglessmoney?NewPublicAdministrationaddsthisquestion:Doesthisserviceenhancesocialequity?ConventionalorclassicPublicSocialEquityPluralisticgovernmentsystematicallydiscriminatesinfavorofestablishedstablebureaucraciesandtheirspcializedminorityclienteleandagainstthoseminoritieswholackpoliticalandeconomicresources.APublicAdministrationwhichfailstoworkforchangeswhichtrytoredressthedeprivationofminoritieswilllikelybeeventuallyusedtorepresstheseminorities.SocialEquityPluralisticgoverTheproceduresofrepresentativedemocracypresentlyoperatesinawaythateitherfailsoronlyverygraduallyattemptstoreversesystematicdiscriminationagainstdisadvantagedminorities.Socialequity,then,includesactivitiesdesignedtoenhancethepoliticalpowerandeconomicwell-beingoftheseminorities.TheproceduresofrepresentatiAfundamentalcommitmenttosocialequitymeansthatnewPublicAdministrationattemptstocometogripswithDwightWaldo’scontentionthatthefieldhasneversatisfactorilyaccommodatedthetheoreticalimplicationsofinvolvementin“politics”andpolicy-making.NewPublicAdministrationattemptstoansweritinthisway:Administratorsarenotneutral.Theyshouldbecommittedtobothgoodmanagementandsocialequityasvalues,thingstobeachieved,orrationales.AfundamentalcommitmenttosoAfundamentalcommitmenttosocialequitymeansthatnewPublicAdministrationisanxiouslyengagedinchange.Simplyput,newPublicAdministrationseekstochangethosepoliciesandstructuresthatsystematicallyinhabitsocialequity.Thisisnotseekingchangeforchange’ssake,butseekingthechangeswhichwouldenhanceitsobjectives—goodmanagement,efficiency,economy,andsocialequity.AfundamentalcommitmenttosoAcommitmenttosocialequityinvolvesattemptstofindorganizationalandpoliticalformswhichexhibitacapacityforcontinuedflexibilityorroutinizedchange.NewPublicAdministrationseeksnotonlytocarryoutlegislativemandatesasefficientlyandeconomicallyaspossible,buttobothinfluenceandexecutepolicieswhichmoregenerallyimprovethequalityoflifeforall.AcommitmenttosocialequityClassicPublicAdministrationemphasizesdevelopingandstrengtheninginstitutionswhichhavebeendesignedtodealwithsocialproblems.ThePublicAdministrationfocus,however,hastendedtodriftfromtheproblemtotheinstitution.NewPublicAdministrationisconcernedlesswithbuildinginstitutionsandmorewithdesigningalternatemeansofsolvingpublicproblems.Thesealternativeswillnodoubthavesomerecognizableorganizationalcharacteristicsandtheywillneedtobebuiltandmaintained,butwillseektoavoidbecomingentrenched,nonresponsiblebureaucraciesthatbecomegreaterpublicproblemsthanthesocialsituationstheywereoriginallydesignedtoimprove.ClassicPublicAdministrationNewPublicAdministrationadvocateswhatcouldbebestdescribedas“second-generationbehavioralism”,whichemphasizesthepublicpartofPublicAdministration.Thesecond-generationbehavioralistisless“generic”andmore“public”thanhisforebear,less“descriptive”andmore“prescriptive”,less“institutionoriented”andmore“client-impactoriented”,less“neutral”andmore“normative”,anditishoped,nolessscientific.NewPublicAdministrationadvoOrganizationTheoryandNewPublicAdministrationUnderstandingofanyphenomenonrequriesseparatingthatphenomenonintopartsandexaminingeachpartindetail.ThenewPublicAdministrationcallsforadifferentwayofsubdividingthephenomenonsoastobetterunderstandit:theintegrativeprocess;theboundary-exchangeprocess;andthesocio-emotionalprocess.OrganizationTheoryandNewPuTheDistributiveProcess(1)Externaldistribution.Cost-utility/cost-benefitanalysisisthechieftechniqueforattemptingtounderstandtheresultsofthedistributiveprocess.Projectthelikelycostsandbenefitsofalternativeprograms.Policy-outcomesanalysisattemptstodeterminethebasisfactorsthatinfluencesordeterminepolicyvariation.EquityinthedistributionofgovernmentserviceswithinajurisdictionTheDistributiveProcess(1)ExtTheDistributiveProcess(2)Internal-organizationdistribution.Thereisaneedtodevelopatheorywhichaccountsforthepresenceofpublicadministratorsconsiderablylesswillingtobargainandmorewillingtotakepoliticalandaministrativerisks.Whenpublicadministratorsleavethesafeharborof“goodmanagement”,whatmightoccur?TheDistributiveProcess(2)IntTheintegrativeprocessNPAadvocatesmodifiedhierarchicsystemmeanstomodifytraditionalhierarchiesArelativetoleranceforvariationAwillingnesstotradeincreasesininvolvementandcommitmenttotheorganizationforpossibledecreasesinefficiencyandeconomyparticularlyintheshortrunTwoseriousproblemswiththeadvocacybyNPAoflessformalintegrativeprocessesAlackofPAspecialistswhoareessentiallyprogrambuildersInherentconflictbetweenhigherandlower-leveladministratorsinlessformalintegrativesystemsTheintegrativeprocessNPAadvTheboundaryexchangeprocessGeneralrelationshipbetweenthepubliclyaministeredorganizationanditsreferencegroupsandclientsAndrelationshipbetweenlevelsofgovernmentinafederalsystem.AconsiderablyhigherclientinvolvementisnecessaryonthepartoftheseminoritieswhohavenotheretoforebeeninvolvedThedevelopmentofnewmeansbywhichadministratorsrelatetotheirlegislaturesTheboundaryexchangeprocessGThesocio
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