the main issues

The Main Issues...The Main Issues...

Sponsorship scandal took place in context framed by...Sponsorship scandal took place in context framed by... the New Public Managment (NPM)the New Public Managment (NPM) freedom of informationfreedom of information whistle-blowingwhistle-blowing public service ethicspublic service ethics

Gomery report recommends changes/adjustments to...Gomery report recommends changes/adjustments to... the New Public Managment (NPM)the New Public Managment (NPM) freedom of informationfreedom of information whistle-blowingwhistle-blowing public service ethicspublic service ethics

Lectures (Part IV)Lectures (Part IV) basic description of each issue/elementsbasic description of each issue/elements how did each element contribute to the context of the sponsorship scandal?how did each element contribute to the context of the sponsorship scandal? what are the relevant recommendations by Gomery?what are the relevant recommendations by Gomery?

THE NEW PUBLIC THE NEW PUBLIC MANAGEMENTMANAGEMENT

The New Public ManagementThe New Public Management

basic descriptionbasic descriptionNPM and the context of the Sponsorship NPM and the context of the Sponsorship

ScandalScandalNPM and the Gomery RecommendationsNPM and the Gomery Recommendations


the motivation for changethe motivation for change the (abstract) solutionthe (abstract) solutionspecific proposals for changespecific proposals for change

Context in which Change is/was Context in which Change is/was Taking Place...Taking Place...

globalizationglobalization government needs to adapt to changing contextgovernment needs to adapt to changing context

budgetary deficitbudgetary deficit government must be more efficientgovernment must be more efficient ““more with less”more with less”

information technology revolutioninformation technology revolution providing the means to “do government differently”providing the means to “do government differently” creating demand that governments govern differentlycreating demand that governments govern differently

less deferential publicless deferential public increasing distrust of government institutions creating demand to change increasing distrust of government institutions creating demand to change

governancegovernance increasing distrust of government placing limits on range of publicly increasing distrust of government placing limits on range of publicly

acceptable solutionsacceptable solutions more aggressive mediamore aggressive media

The Case Against BureaucracyThe Case Against Bureaucracybureaucrats primary focus is proper bureaucrats primary focus is proper

procedure -- rather than resultsprocedure -- rather than results– bureaucratic self-preservationbureaucratic self-preservation

rigid -- rather than responsiverigid -- rather than responsive insulated -- rather than sensitive insulated -- rather than sensitive wastefulwasteful

– bureaucratic self-aggrandizementbureaucratic self-aggrandizementunrepresentativeunrepresentative


the motivation for changethe motivation for change the (abstract) solutionthe (abstract) solution

– If ONLY GOVERNMENT WERE MORE If ONLY GOVERNMENT WERE MORE LIKE THE PRIVATE SECTOR...sigh...LIKE THE PRIVATE SECTOR...sigh...

– What’s needed is a change in...What’s needed is a change in...

VALUES!!VALUES!!


making government become more like making government become more like business...business...– focused on customer servicefocused on customer service– subject to competitionsubject to competition– performance clearly indicated by profit margins performance clearly indicated by profit margins

-- “the bottom line”-- “the bottom line” central concern with outcomes not processcentral concern with outcomes not process


the motivation for changethe motivation for change the (abstract) solutionthe (abstract) solutionspecific proposals for change from specific proposals for change from

traditional public administrationtraditional public administration



traditional public administrationtraditional public administration valuesvalues



traditional public administrationtraditional public administration valuesvalues management practicesmanagement practices

Values of the Values of the New Public ManagementNew Public Management

New PublicManagement

Traditional PublicAdministration

Values entrepreneurship,flexibility, creativity

prudence, stability,probity,accountability

Risk Tolerance risk taking risk averse

Accountability accountability byresults

processaccountability

Structures decentralized,partnerships,contracts

hierarchical,centralized



traditional public administrationtraditional public administration valuesvalues management practicesmanagement practices

The New Public Management The New Public Management (Borins) – Management Practices(Borins) – Management Practices

providing high-quality services that citizens valueproviding high-quality services that citizens value– adoption of private sector concepts of customer serviceadoption of private sector concepts of customer service

increasing the autonomy of public managers (especially from increasing the autonomy of public managers (especially from central agency controls)central agency controls)– focus on outcomes not processfocus on outcomes not process

performance indicators/benchmarkingperformance indicators/benchmarking measuring and rewarding organizations and individuals on measuring and rewarding organizations and individuals on

whether they meet performance targetswhether they meet performance targets open-minded attitude about which public purposes should be open-minded attitude about which public purposes should be

performed by the private sectorperformed by the private sector– focus on “core businesses”focus on “core businesses”

privatizationprivatization– ““steering not rowing”steering not rowing”

alternative service deliveryalternative service delivery– appreciating the virtues of competitionappreciating the virtues of competition

The New Public Management – The New Public Management – The Canadian ModelThe Canadian Model

distinguishing features – pragmatic/practical and distinguishing features – pragmatic/practical and non-ideologicalnon-ideological

providing high-quality services that citizens valueproviding high-quality services that citizens value– focus on citizen-centred service, service standards, focus on citizen-centred service, service standards,

and service qualityand service quality

Treasury Board. Results for Canadians: A Management Framework for the Government of Canada. 2000.

Institute of Public Administration of Canada




and service qualityand service quality

increasing the autonomy of public managers increasing the autonomy of public managers (especially from central agency controls)(especially from central agency controls)




and service qualityand service quality increasing the autonomy of public managers increasing the autonomy of public managers

(especially from central agency controls)(especially from central agency controls)– emphasized in terms of financial and adminsitrative emphasized in terms of financial and adminsitrative

controls; less success in terms of human resource controls; less success in terms of human resource managementmanagement


distinguishing features – pragmatic/practical and non-distinguishing features – pragmatic/practical and non-ideologicalideological

providing high-quality services that citizens valueproviding high-quality services that citizens value– focus on citizen-centred service, service standards, and service focus on citizen-centred service, service standards, and service

qualityquality increasing the autonomy of public managers (especially increasing the autonomy of public managers (especially

from central agency controls)from central agency controls)– emphasized in terms of financial and adminsitrative controls; emphasized in terms of financial and adminsitrative controls;

less success in terms of human resource managementless success in terms of human resource management measuring and rewarding organizations and individuals measuring and rewarding organizations and individuals

on whether they meet performance targetson whether they meet performance targets


distinguishing features – pragmatic/practical and non-distinguishing features – pragmatic/practical and non-ideologicalideological

providing high-quality services that citizens valueproviding high-quality services that citizens value– focus on citizen-centred service, service standards, and service focus on citizen-centred service, service standards, and service

qualityquality increasing the autonomy of public managers (especially increasing the autonomy of public managers (especially

from central agency controls)from central agency controls)– emphasized in terms of financial and adminsitrative controls; emphasized in terms of financial and adminsitrative controls;

less success in terms of human resource managementless success in terms of human resource management measuring and rewarding organizations and individuals measuring and rewarding organizations and individuals

on whether they meet performance targetson whether they meet performance targets– less effective emphasis – esp. on performance targetsless effective emphasis – esp. on performance targets

Institute of Public Administration of Canada


distinguishing features – pragmatic/practical and non-ideologicaldistinguishing features – pragmatic/practical and non-ideological providing high-quality services that citizens valueproviding high-quality services that citizens value

– focus on citizen-centred service, service standards, and service qualityfocus on citizen-centred service, service standards, and service quality increasing the autonomy of public managers (especially from increasing the autonomy of public managers (especially from

central agency controls)central agency controls)– emphasized in terms of financial and adminsitrative controls; less success emphasized in terms of financial and adminsitrative controls; less success

in terms of human resource managementin terms of human resource management measuring and rewarding organizations and individuals on measuring and rewarding organizations and individuals on

whether they meet performance targetswhether they meet performance targets– less effective emphasis – esp. on performance targetsless effective emphasis – esp. on performance targets

open-minded attitude about which public purposes should be open-minded attitude about which public purposes should be performed by the private sectorperformed by the private sector







open-minded attitude about which public purposes should be open-minded attitude about which public purposes should be performed by the private sectorperformed by the private sector– the role of government “can vary from leader, to catalyst, to partner”the role of government “can vary from leader, to catalyst, to partner”







open-minded attitude about which public purposes should be open-minded attitude about which public purposes should be performed by the private sectorperformed by the private sector– the role of government “can vary from leader, to catalyst, to partner”the role of government “can vary from leader, to catalyst, to partner”– less emphasis on privatization – more emphasis on alternative service less emphasis on privatization – more emphasis on alternative service

deliverydelivery

Alternative Service DeliveryAlternative Service Delivery

Minor Change Radical Change

User Fees Co-location

Single Window Delivery

Special Operating Agencies

Partnerships

Contracting Out

New Technologies

Privatization

Devolution

IPAC Award for Innovative ManagmentIPAC Award for Innovative Managment

20062006 Sharing Governance – Citizens, Sharing Governance – Citizens, Partners, NetworksPartners, Networks

20022002 Outside-In – Changing Outside-In – Changing Government to Meet Client Government to Meet Client

NeedsNeeds19991999 Measurement and RecognitionMeasurement and Recognition19921992 Partnership MangementPartnership Mangement

The New Public Management – The New Public Management – The Canadian Model (Summary)The Canadian Model (Summary)


application of the model in Canada has been application of the model in Canada has been limitedlimited

The Context -- New Public The Context -- New Public ManagementManagement ““...there are those who will say that the adoption ...there are those who will say that the adoption

of new public management principles, with their of new public management principles, with their emphasis on service delivery, increased autonomy emphasis on service delivery, increased autonomy of public managers from central controls. of public managers from central controls. rewarding individuals for performance, and rewarding individuals for performance, and cutting public programs and public servants, cutting public programs and public servants, significantly contributed to the grants and significantly contributed to the grants and contributions crisis.”contributions crisis.”

David A. Good, David A. Good, The Politics of Public The Politics of Public

ManagementManagement

The Context -- New Public The Context -- New Public ManagementManagement the degree of reliance on private enterprise the degree of reliance on private enterprise

in the Sponsorship programin the Sponsorship program

The Context -- New Public The Context -- New Public ManagementManagement

““One expert attribute the Sponsorship scanadal to excesses One expert attribute the Sponsorship scanadal to excesses caused by what he called a “private business culture” or caused by what he called a “private business culture” or “entrepreneurialism” in the public service. This attitude has “entrepreneurialism” in the public service. This attitude has replaced a “public business” standards based on the public replaced a “public business” standards based on the public interest. In the Sponsorship Program, acccording to this interest. In the Sponsorship Program, acccording to this theory, the Prime Minister and the Cabinet, with the best of theory, the Prime Minister and the Cabinet, with the best of intentions, encouraged the entrepreneurialism of certain intentions, encouraged the entrepreneurialism of certain public servants, who in turn stopped working for and by the public servants, who in turn stopped working for and by the rules of their department and cultviate relationships with rules of their department and cultviate relationships with private-sector sponsorship companies using a different set of private-sector sponsorship companies using a different set of rules and standards.”rules and standards.” Gomery Report, Gomery Report, RecommendationsRecommendations, 46., 46.


in the Sponsorship programin the Sponsorship program lax attitude towards processlax attitude towards process


““One legal expert spoke of the Government One legal expert spoke of the Government advertising program as having no rules or dierction, advertising program as having no rules or dierction, suggesting that a ‘shift to a rule-of-law culture’ suggesting that a ‘shift to a rule-of-law culture’ would shelter advertising programs from corruption. would shelter advertising programs from corruption. Such a culture would shift the balance towards Such a culture would shift the balance towards public servants’ loyalty to the rules of the public public servants’ loyalty to the rules of the public service rather than to the wishes of their political service rather than to the wishes of their political superiors.”superiors.” Gomery Gomery Report, Report, RecommendationsRecommendations, 46., 46.

The Context -- New Public The Context -- New Public ManagementManagement ““The management culture has changed The management culture has changed

dramatically over the past 20 years from solid dramatically over the past 20 years from solid record-keeping, accountability and dedication to record-keeping, accountability and dedication to the public service and loyalty according to our the public service and loyalty according to our oath of office to Canada, to avoidance of record-oath of office to Canada, to avoidance of record-keeping and accountability, and dedication of keeping and accountability, and dedication of loyalty to the individuals who appointed you and loyalty to the individuals who appointed you and can promote you.”can promote you.”Former Public Servant quoted in Gomery Former Public Servant quoted in Gomery Report, Report, RecommendationsRecommendations, 35., 35.

The Context -- New Public The Context -- New Public ManagementManagement““...the preoccupation with policy and the ...the preoccupation with policy and the

resulting lack of emphasis on management resulting lack of emphasis on management had permitted the quality of departmental had permitted the quality of departmental management to fall short of acceptable management to fall short of acceptable standards.”standards.”

Gomery Report, Gomery Report, RecommendationsRecommendations, , 35.35.


in the Sponsorship programin the Sponsorship program lax attitude towards processlax attitude towards process the emphasis on resultsthe emphasis on results


in the Sponsorship programin the Sponsorship program lax attitude towards processlax attitude towards process the emphasis on resultsthe emphasis on results

– Mr. Chretien’s defence of the programMr. Chretien’s defence of the program

The Context -- New Public The Context -- New Public ManagementManagement the degree of reliance on private enterprise in the the degree of reliance on private enterprise in the

Sponsorship programSponsorship program lax attitude towards processlax attitude towards process the emphasis on resultsthe emphasis on results

– Mr. Chretien’s defence of the programMr. Chretien’s defence of the program ““By the year of 2003, support for Canada in Quebec had By the year of 2003, support for Canada in Quebec had

increased substantially from where it was in the immediate increased substantially from where it was in the immediate aftermath of the Referendum. In the fall of 2003, 65 percent aftermath of the Referendum. In the fall of 2003, 65 percent of Quebecers were satisfied with their federal government.”of Quebecers were satisfied with their federal government.”


the degree of reliance on private enterprise in the the degree of reliance on private enterprise in the Sponsorship programSponsorship program

lax attitude towards processlax attitude towards process the emphasis on resultsthe emphasis on results

– Mr. Chretien’s defence of the programMr. Chretien’s defence of the program ““By the year of 2003, support for Canada in Quebec had increased By the year of 2003, support for Canada in Quebec had increased

substantially from where it was in the immediate aftermath of the substantially from where it was in the immediate aftermath of the Referendum. In the fall of 2003, 65 percent of Quebecers were Referendum. In the fall of 2003, 65 percent of Quebecers were satisfied with their federal government.”satisfied with their federal government.”

– indicative of general problems with performance reportingindicative of general problems with performance reporting reporting problemsreporting problems attributing causationattributing causation

Values of the Values of the New Public ManagementNew Public Management

New PublicManagement









Context in which Change is/was Context in which Change is/was Taking Place...Taking Place...globalizationglobalizationbudgetary deficitbudgetary deficit information technology revolutioninformation technology revolution less deferential publicless deferential publicmore aggressive mediamore aggressive media

Some Thoughts on the Context:Some Thoughts on the Context:

““When a culture of forbearance and forgiveness descends on When a culture of forbearance and forgiveness descends on Washington, please alert the FBI at once. It is evidence Washington, please alert the FBI at once. It is evidence that someone has kidnapped or anaesthetized the entire that someone has kidnapped or anaesthetized the entire legislative and judicial branches.”legislative and judicial branches.” James Q. James Q. WilsonWilson

““There’s a new emphasis in the federal government to There’s a new emphasis in the federal government to encourage risk-taking among its employees. But the encourage risk-taking among its employees. But the reality remains that when mistakes are made the individual reality remains that when mistakes are made the individual is hoisted up the flagpole.”is hoisted up the flagpole.” News report of TBS News report of TBS

StudyStudy

OBSTACLES TO REFORM:OBSTACLES TO REFORM:The “Control Lobby”The “Control Lobby”

who are they?who are they?– opposition parties in Parliamentopposition parties in Parliament– The Auditor GeneralThe Auditor General– the mediathe media

linklink– doubts about the adequacy of rules regulating doubts about the adequacy of rules regulating

bureaucratic behaviorbureaucratic behavior motivesmotives

benignbenign cynicalcynical

REFORM VS. THE CONTROL REFORM VS. THE CONTROL LOBBY: A ChronologyLOBBY: A Chronology the Glassco Commission (1960-1963)the Glassco Commission (1960-1963) Refitting Refitting BonaventureBonaventure the Lambert Commission (1979)the Lambert Commission (1979) the McGrath Report (1985)the McGrath Report (1985) PS2000 (1989)PS2000 (1989) the Al-Mashat Affair (1991)the Al-Mashat Affair (1991) the New Public Management (1992...)the New Public Management (1992...) the HRDC Billion Dollar Boondogglethe HRDC Billion Dollar Boondoggle the Sponsorship Scandalthe Sponsorship Scandal

Control Lobby DemandsControl Lobby Demands

calls for greater personal bureaucratic calls for greater personal bureaucratic accountabilityaccountability

Calls for Greater Bureaucratic Calls for Greater Bureaucratic AccountabilityAccountabilityministerial “answerability”ministerial “answerability”

– lack of appropriate penaltieslack of appropriate penalties– artificiality of ministerial “answerability”artificiality of ministerial “answerability”

tenure of ministerstenure of ministers scope of ministerial knowledge/competencescope of ministerial knowledge/competence reactive (rather than proactive)reactive (rather than proactive)

– example of HRDC scandalexample of HRDC scandal

Calls for Greater Bureaucratic Calls for Greater Bureaucratic AccountabilityAccountability the myth and practice of ministerial the myth and practice of ministerial

responsibilityresponsibility the problems of ministerial “answerability”the problems of ministerial “answerability” towards greater personal bureaucratic towards greater personal bureaucratic

accountabilityaccountability



accountabilityaccountability Freedom of InformationFreedom of Information



accountabilityaccountability Freedom of InformationFreedom of Information bureaucratic accountability to parliamentary bureaucratic accountability to parliamentary

committeescommittees

Control Lobby DemandsControl Lobby Demands

calls for greater personal bureaucratic calls for greater personal bureaucratic accountabilityaccountability

calls for tighter controls on bureaucracy and calls for tighter controls on bureaucracy and stricter program rulesstricter program rules

Effects of Control Lobby Effects of Control Lobby PressurePressurecentralization over decentralizationcentralization over decentralizationflexibility becomes a riskflexibility becomes a risk

risk for political officialsrisk for political officials risk for bureaucratic officialsrisk for bureaucratic officials

alternative service delivery poses riskalternative service delivery poses risk– contracts, partnershipscontracts, partnerships

risk-taking is strongly discouragedrisk-taking is strongly discouraged

““In the private sector, it does not matter much if you In the private sector, it does not matter much if you get it wrong 30 percent of the time so long as you get it wrong 30 percent of the time so long as you can turn a profit at the end of the year and the can turn a profit at the end of the year and the bottom line remains healthy. In the public sector it bottom line remains healthy. In the public sector it does not matter much if you get it right 95 percent does not matter much if you get it right 95 percent of the time because the focus will be on the 5 of the time because the focus will be on the 5 percent of the time you get it wrong.”percent of the time you get it wrong.”

Donald Savoie,Donald Savoie,

Governing from the Centre Governing from the Centre (1999:54)(1999:54)

Effects of Control Lobby Effects of Control Lobby DemandsDemandscentralization over decentralizationcentralization over decentralizationflexibility becomes a political riskflexibility becomes a political riskalternative service delivery poses riskalternative service delivery poses risk

– contracts, partnershipscontracts, partnerships

risk-taking is strongly discouragedrisk-taking is strongly discouragedprocess accountability favoured over process accountability favoured over

results-based accountabilityresults-based accountability

The New Public ManagementThe New Public ManagementNew PublicManagement









The NPM and the Gomery The NPM and the Gomery RecommendationsRecommendations

The NPM and the Gomery The NPM and the Gomery RecommendationsRecommendationsno need for new central controls no need for new central controls

– ““...more red tape and more regulations than ...more red tape and more regulations than exist at present should not be recommended.”exist at present should not be recommended.”

– re: new internal audit approach and re: new internal audit approach and establishment of CFOs in departmentsestablishment of CFOs in departments

““...they could also add more red tape to government ...they could also add more red tape to government and have but limited impact on the political and and have but limited impact on the political and adminstrative culture.” (26)adminstrative culture.” (26)

The NPM and the Gomery The NPM and the Gomery RecommendationsRecommendations no need for new central controls no need for new central controls greater accountability for existing rulesgreater accountability for existing rules

– ““Managers must continue to have the resonsibility for Managers must continue to have the resonsibility for managing, but they should be more accountable for the managing, but they should be more accountable for the use of thier power.” (10)use of thier power.” (10)

– ““They must know that they will be held accountable for They must know that they will be held accountable for any deficiency in their stewardship of the public purse.” any deficiency in their stewardship of the public purse.” (11)(11)

– ““The knowledge that one’s errors and misdeeds will be The knowledge that one’s errors and misdeeds will be found out and exposed is a powerful encouragement to found out and exposed is a powerful encouragement to better performance and behaviour.” (117)better performance and behaviour.” (117)

The NPM and the Gomery The NPM and the Gomery RecommendationsRecommendationsno need for new central controls no need for new central controls greater accountability for existing rulesgreater accountability for existing rules

– strengthen the Public Accounts Committeestrengthen the Public Accounts Committee– make DMs directly accountable to PAC for make DMs directly accountable to PAC for

managementmanagement

The NPM and the Gomery The NPM and the Gomery RecommendationsRecommendationsno need for new central controls no need for new central controls greater accountability for existing rulesgreater accountability for existing rulesculture changeculture change

The NPM and the Gomery The NPM and the Gomery RecommendationsRecommendations

““...a change in administrative culture is needed to ensure ...a change in administrative culture is needed to ensure that management in the Government of Canada reaches that management in the Government of Canada reaches acceptable standards. [...] Fr the culture of the public acceptable standards. [...] Fr the culture of the public service to change so that regularity, propriety, and good service to change so that regularity, propriety, and good management in general are given a higher priority, the management in general are given a higher priority, the public service, and particularly those who are its public service, and particularly those who are its administrative heads, must give management skills a administrative heads, must give management skills a higher priority. [...] The solution remains...to persuade the higher priority. [...] The solution remains...to persuade the managers to focus on good management.”managers to focus on good management.”

Gomery Report, Gomery Report, RecommendationsRecommendations, , 106-7.106-7.

CONCLUSIONS:CONCLUSIONS:The Virtues of Bureaucracy vs. The The Virtues of Bureaucracy vs. The Need for ReformNeed for Reform

valuing the virtues of bureaucracyvaluing the virtues of bureaucracy– impartiality/accountabilityimpartiality/accountability

can be misconstrued as red tape and inefficiencycan be misconstrued as red tape and inefficiency

– the vicious cycle of bureaucratic distrustthe vicious cycle of bureaucratic distrust

The Virtues of Bureaucracy vs. The The Virtues of Bureaucracy vs. The Need for ReformNeed for Reform

valuing the virtues of bureaucracyvaluing the virtues of bureaucracy– need to temper public expectations regarding bureaucratic need to temper public expectations regarding bureaucratic

performanceperformance the need for reformthe need for reform

– need to temper public expectations about accountability and need to temper public expectations about accountability and raise public tolerance of riskraise public tolerance of risk

Where to start?Where to start?– ““Big answers to management constraints in government Big answers to management constraints in government

departments will not be possible until Parliament and the departments will not be possible until Parliament and the control lobby first change their ways.”control lobby first change their ways.”

Donald Donald Savoie, 1999Savoie, 1999

the main issues

Documents

autonomy of public managers

changethe abstract solutionif

sponsorship scandalnpm

central agency controlsfocus

proper procedure

ivbasic description

linecentral concern

relevant recommendations