file1 (No cong)

Public Management and Governance
Government is topical once again. After many years of speculation that the market could take
over much of its role, strong and democratic government is now widely seen as critically impor-
tant to society. Moreover, the quality of public services is a major electoral issue in most countries
around the world.
This major textbook examines what it means to have efficient management and good quality
services in the public sector and how public sector performance can be improved. Furthermore,
it explores how the process of governing needs to be fundamentally altered if a government is to
retain public trust and make better use of society’s resources.
Key themes covered include:
■
the challenges and pressures which governments experience in an international context;
■
the changing functions of modern government in the global economy;
■
the ‘mixed economy’ of public, voluntary and private service provision;
■
the new concern with public governance issues such as public engagement, the equalities
agenda and ethics.
Public Management and Governance
is an exciting new textbook for students, featuring contri-
butions from leading names in the field and covering the key topics in depth. The book includes
discussion questions, group and individual exercises, case studies and further reading, making it
essential reading for all students on specialist undergraduate and postgraduate courses in Public
Services Management, Public Administration, Government and Public Policy.
Tony Bovaird is Professor of Strategy and Public Services Management at Bristol Business
School. He has published widely in strategic management, public policy evaluation and perfor-
mance management in the public sector. Elke Löffler is Chief Executive of Governance
International, and Senior Research Associate at Bristol Business School. She has published widely
in public governance and quality management in the public sector.

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Edited by Tony Bovaird
and Elke Löffler
Public Management
and Governance
First published 2003
by Routledge
11 New Fetter Lane, London EC4P 4EE
Simultaneously published in the USA and Canada

by Routledge
29 West 35th Street, New York, NY 10001
Routledge is an imprint of the Taylor & Francis Group
© 2003 Tony Bovaird and Elke Löffler selection and editorial matter;
individual chapters, the contributors
All rights reserved. No part of this book may be reprinted or reproduced or
utilized in any form or by any electronic, mechanical, or other means, now
known or hereafter invented, including photocopying and recording, or in any
information storage or retrieval system, without permission in writing from the
publishers.
British Library Cataloguing in Publication Data
A catalogue record for this book is available from the British Library
Library of Congress Cataloging in Publication Data
Public management and governance / edited by Tony Bovaird and Elke Löffler.
p. cm.
Includes bibliographical references and index.
1. Public administration. 2. Government productivity. 3. Legitimacy of
governments. 4. Public administration–Citizen participation. I. Title:
Public management and governance. II. Bovaird, A. G. III. Löffler, Elke.
JF1351.P824 2003
351–dc21 2003007032
ISBN 0–415–25245–8 (hbk)
ISBN 0–415–25246–6 (pbk)
This edition published in the Taylor & Francis e-Library, 2005.
"To purchase your own copy of this or any of Taylor & Francis or Routledge's
collection of thousands of eBooks please go to www.eBookstore.tandf.co.uk.''
ISBN 0-203-63421-7 Master e-book ISBN
ISBN 0-203-63750-X
(Adobe eReader Format)
List of figures vii

List of tables viii
Case examples ix
Notes on contributors x
Acknowledgements xiv
A guide for the reader xvii
Chapter map xxii
Part I FROM PUBLIC MANAGEMENT TO GOVERNANCE 1
1 Understanding public management and governance 3
Tony Bovaird and Elke Löffler
2 The changing context of public policy 13
Tony Bovaird and Elke Löffler
3 The size and scope of the public sector: an international comparison 25
Peter M. Jackson
4 Public management in flux: trends and differences across OECD countries 41
Alex Matheson and Hae-Sang Kwon
Part II PUBLIC MANAGEMENT 53
5 Strategic management in public sector organizations 55
Tony Bovaird
6 Marketing in public sector organizations 75
Tony Bovaird
7 Contracting for public services: competition and partnership 89
Andrew Erridge
8 Changing roles of public financial management 101
James L. Chan
9 Moving to e-government: the role of ICTs in the public sector 113
Christine Bellamy
10 Performance measurement and management in public sector organizations 127
Geert Bouckaert and Wouter van Dooren
11 Quality management in public sector organizations 137
Tony Bovaird and Elke Löffler

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v
Contents
12 Scrutiny through inspection and audit: policies, structures and processes 149
John Clarke
Part III GOVERNANCE AS AN EMERGING TREND IN THE PUBLIC SECTOR 161
13 Governance and government: networking with external stakeholders 163
Elke Löffler
14 Public leadership 175
Mike Broussine
15 Engaging with citizens and other stakeholders 189
Steve Martin
16 Changing equalities: politics, policies and practice 203
Janet Newman
17 Ethics and standards of conduct 213
Howard Davis
18 Evidence-based policy and practice 225

Annette Boaz and Sandra Nutley
References 237
Index 249
vi
CONTENTS
2.1 Types of public agencies 19
5.1 Public sector value chain 59
5.2 Public sector Boston matrix 64
5.3 Need and provision matrix 65
5.4 Maps from two stakeholders 65
5.5 The public service supply chain 68
6.1 The expanded marketing mix for public services 83
10.1 The policy and management cycle 130
15.1 ‘Ladder of participation’ 192
15.2 Public participation spectrum 193
15.3 Modes of public participation 195
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vii
Figures
3.1 General government outlays, by country 30
3.2 General government outlays, by economic category: consumption 31
3.3 General government outlays, by economic category: income transfers 32
3.4 General government outlays, by economic category: subsidies 33
3.5 General government outlays, by economic category: net capital outlays 34
3.6 Gross total social expenditure, 1995, as a percentage of GDP 36
4.1 A changing reform agenda 50
6.1 Stakeholder power/interest matrix 80
8.1 Government as a coalition of stakeholders 107
8.2 Tools of government 108
8.3 Context of public financial management 109
8.4 Contents of public financial management 109
8.5 Supporting information services 110
11.1 Who knows about quality? 141
13.1 The move from local government to local governance 168
13.2 The ‘Rhodes typology’ of policy networks 171
13.3 Key network management strategies 172
14.1 The difference between management and leadership 180
15.1 Turn-out in local elections 190
18.1 Evidence uses and methods 229
18.2 Types of evidence-based practice 233
viii
Tables
1.1 Differences between managerial and governance approaches 9
4.1 Results from evaluation of the public management reforms in New Zealand 44
8.1 The use of accrual accounting in the UK 104
8.2 Turning cost centres into revenue centres 105
9.1 www.vic.gov.au: a mini case study of ESD 118

9.2 The Australian Centrelink: a mini case study of e-enabled one-stop services
www.centrelink.gov.au 119
9.3 E-democracy in British government 120
9.4 Proposals for extended data sharing in British government 122
10.1 The move to Best Value in the UK 129
11.1 Court Service, UK 145
12.1 The creation of the Audit Commission in 1983 152
12.2 The new roles of the Auditor General of Canada 153
13.1 The Blarney strategic plan for sustainable development 167
14.1 Solving local problems through community leadership 184
15.1 The New Deal for Communities programme 191
15.2 The People’s Panel 192
15.3 Major surveys in the UK 196
17.1 Recent corruption scandals in the UK 217
17.2 The Independent Commission against Corruption in Hong Kong 221
18.1 Systematic reviews of the existing knowledge base 227
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ix
Case examples
Christine Bellamy is Professor of Public Administration and Head of the Social Sciences
Graduate School at the Nottingham Trent University, UK. She has been a leading writer
on e-government and e-democracy in Europe over the past ten years, and is a member
of several European and international research networks. Her book Governing in the
Information Age (Open University Press, 1998, co-authored with Professor John Taylor)
is a standard text on the subject. Chris Bellamy is the immediate past Chair of the UK
Joint University Council, which is the national association for Public Administration,
Social Policy and Social Work Education.
Annette Boaz is a Senior Research Fellow in the UK ESRC Centre for Evidence Based
Policy and Practice at Queen Mary, University of London, UK. She has carried out
research for a wide range of organizations including the Cabinet Office, the Health
Development Agency and the Inter-Ministerial Group for Older People. She worked
previously at the Universities of Oxford and Warwick and was seconded recently to the
Policy Research Programme at the UK Department of Health. She is currently working
on issues relating to methodology development.
Geert Bouckaert is Professor of Public Management and Director of the Public
Management Institute at the Faculty of Social Sciences at the Katholieke Universiteit
Leuven in Leuven, Belgium. He is also the Co-ordinator of the Policy Research Centre
for Governmental Organizations in Flanders. His main research interests are in perfor-
mance management, public sector productivity measurement, quality management and
financial management techniques in the public sector.
Tony Bovaird is Professor of Strategy and Public Services Management at Bristol Business
School, University of the West of England, UK. He worked at the Department of the
Environment, Birmingham University, and Aston University before joining UWE in
2000. He is director of the national research team which is undertaking a long-term
meta-evaluation of the Local Government Modernisation Agenda in the UK on behalf
of the Office of the Deputy Prime Minister. He recently authored reports for OECD
on the evaluation of e-government and for the Cabinet Office on the evaluation of civil

service reforms in the UK.
x
Contributors
Mike Broussine is a Principal Lecturer at Bristol Business School, University of the West
of England, UK and works with a range of organizations as a researcher and developer.
He is Award Leader for UWE’s MSc in Leadership and Organization of Public Services,
a programme designed to promote learning across the public, private and voluntary
sectors. His main research interests are emotions and power in organizations, leader-
ship, gender issues, organizational research methods and public services management.
James L. Chan is Professor of Accounting at the University of Illinois at Chicago, USA,
and Consulting Professor at Shanghai University of Finance and Economics and Xiamen
University, China. He has written and consulted on public budgeting and accounting
issues primarily from an international comparative perspective. He was a member of the
US Comptroller General’s Research and Education Advisory Panel (1990–2000). He has
edited nine volumes of Research in Governmental and Nonprofit Accounting.
John Clarke is Professor of Social Policy at the Open University, UK. From a background
in cultural studies he has developed a range of research interests around the ways in
which welfare states are being transformed. These include: comparative studies, with a
particular interest in the USA; the role of managerialism in reforming welfare states;
and the significance of audit and evaluative practices in the management of public
services. His publications include The Managerial State: Power, Politics and Ideology in the
Remaking of Social Welfare with Janet Newman (Sage, 1997); and New Managerialism, New
Welfare? co-edited with Sharon Gewirtz and Eugene McLaughlin (Sage, 2000). He is
currently working on a book on the transformation of welfare states.
Howard Davis is Principal Research Fellow and Research Manager at the Local
Government Centre, Warwick Business School, University of Warwick, UK. He has
undertaken a wide range of local government projects in both Britain and the countries
of Central and Eastern Europe. Current research interests include Best Value, the impact
of inspection on local government, scrutiny and ‘new’ political management arrange-
ments, ethics and standards in public life, and the ‘freedoms and flexibilities’ agenda.

Andrew Erridge is Professor of Public Policy and Management in the School of Policy
Studies at the University of Ulster, UK. His main research interest is in public procure-
ment. In recent years he has contributed to the Gershon Review of Civil Government
Procurement, advised the National Audit Office on their study on Modernizing
Procurement and carried out research for the NAO’s Guide to the Audit of
Procurement. In 2000 he completed a three-year ESRC-funded research project on UK
Central Government Procurement. He has published three books, many book chapters
and journal articles, and is a member of the editorial committees of the European Journal
of Purchasing and Supply Management and the Journal of Public Procurement.
Peter M. Jackson is Dean of the University of Leicester Management Centre, UK, and
has had a continuing interest in public finance and public sector management for over
thirty years. Since starting out on his career as an economist with HM Treasury, he has
made a major contribution to debates on public expenditure management and control
and on approaches to measuring the performance of public sector organizations. His
most recent work focuses on public private partnerships. In 2001 he was appointed as
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xi

CONTRIBUTORS
specialist adviser to the Finance Committee of the Scottish Parliament, assisting in its
inquiry into the Private Finance Initiative.
Hae-Sang Kwon is currently Head of Division in the Korean Ministry of Planning and
Budget whose main tasks are to make the national budget and to reform systems of
public management and governance. He worked at the Public Management Service
(PUMA) of the OECD as a project manager from 1999 to 2002. He studied economics
and national security at the graduate schools of Birmingham University in the UK and
Korean National Defense University.
Elke Löffler is Chief Executive of Governance International, a new nonprofit organization
in the UK. She is also a Senior Research Associate at the Bristol Business School,
University of the West of England, UK. Previously she was a staff member of the Public
Management Service (PUMA) of OECD where she worked on performance and inter-
governmental management. Prior to joining the OECD, she did international
comparative research on administrative modernization while at the Research Institute
for Public Administration (FÖV) in Speyer, Germany.
Steve Martin is Professor of Public Policy and Management and Director of the Local and
Regional Government Research Unit at Cardiff University, UK. He is directing a series
of major studies of current public sector reforms in the UK. He has written widely on
public policy and local government management, focusing in particular on service
improvement, public engagement and partnership working, and is an adviser to several
national government departments and agencies and to many local authorities.
Alex Matheson has been Head of the Budgeting and Management Division of the Public
Governance and Territorial Development Directorate of the OECD in Paris since the
beginning of 2000, providing research, analysis and policy guidance on public expendi-
ture and public sector management issues. His current work programme covers public
sector modernization, performance measures and incentives in budgeting and manage-
ment, ‘distributed governance’, leading-edge developments in public sector budgeting
and accounting, management control and the prevention of corruption and the learning
government. Before coming to the OECD, Alex was, for three years, a Special Adviser

on Public Management for the Commonwealth Secretariat based in London, undertaking
consultancy seminars in Africa, the Caribbean, South Asia, South East Asia and the South
Pacific. Prior to his career in intergovernmental organizations, Alex worked for twenty-
five years in the New Zealand Public Service, latterly with responsibility for the
second-generation public sector reform agenda. He has published widely on public
management issues in international journals and books.
Janet Newman is Professor of Social Policy at the Open University, UK. She has worked
extensively with public service managers experiencing the changes introduced within the
modernizing reforms of New Labour. She has also undertaken a range of research
projects on these reforms, including projects on public service innovation, on partner-
ship working and on public participation. She is the author of Modernising Governance:
New Labour, Policy and Society (Sage, 2001) and the co-author, with John Clarke, of The
Managerial State: Power, Politics and Ideology in the Remaking of Social Welfare (Sage, 1997).
xii
CONTRIBUTORS
Sandra Nutley is Professor of Public Policy and Management at the University of
St Andrews, UK. Prior to becoming an academic she worked in local government. She
is Co-director of the Centre for Public Policy and Management (CPPM) at St Andrews.
She also heads up the ESRC-funded Research Unit for Research Utilization, part of the
ESRC UK Network for Evidence-Based Policy and Practice. Her main research inter-
ests are in evidence-based policy and practice, the management of change, and
performance management. She has published numerous articles and five books, including
What Works? Evidence-based Policy and Practice in Public Services (with Huw Davies and Peter
Smith, The Policy Press, 2000).
Wouter van Dooren is a Research Assistant at the Public Management Institute in the
Faculty of Social Sciences at the Katholieke Universiteit Leuven in Leuven, Belgium. He
is currently working on his doctoral thesis on supply and demand of performance infor-
mation in the public sector and has published a number of articles on performance
management and measurement in books and journals.
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xiii
CONTRIBUTORS
The editors and publisher would like to thank the following for permission to use copy-
right material:
Haufe Publishers for Banner, G. (2002), ‘Zehn Jahre Kommunale Verwaltungs-
modernisierung – was wurde erreicht und was kommt danach?’, Rechnungswesen und
Controlling, ed. E. Meurer and G. Stephan, Vol. 4, June 2002, pp. 7/313–7/342, Freiburg
(Haufe Verlag).
OECD for Tables 3.1 to 3.6. Adapted from OECD Economic Outlook No. 68, Issue 2,
December 2000; Table 3.1, General government outlays, by country (p. 42), Table 3.2,
General government outlays, by economic category: consumption (p. 46), Table 3.3, General
government outlays, by economic category: income transfers (p. 52), Table 3.4, General
government outlays, by economic category: subsidies (p. 56), Table 3.5, General government
outlays, by economic category: net capital outlays (p. 57) and Table 3.6, Gross total social
expenditure, 1995, as a percentage of GDP (Atkinson, P. and van den Noord, P. (2001) and
no.9220, Managing Public Expenditure, and no.8221, OECD Economics Working Paper.
Public Services Network for an extract from Making or buying? The value of internal service

providers in local government, Entwistle, T., Martin, S. and Enticott, G. (2002); Cardiff
University: Local and Regional Government Research Unit, for the Public Services Network.
Office of the Auditor General of Canada, What we do, />domino/other.nsf/html/bodye.html. 2002. Reproduced with the permission of the Minister
of Public Works and Government Services, 2003.
Nomos Verlagsgesellschaft, Developing local governance networks in Europe, p. 10, Box 1, and
pp. 35–36, 2002, Bovaird, T., Löffler, E. and Parrado Diez, S. Reprinted by Permission.
Sage Publications Ltd for Table 13.1, The move from local government to local gover-
nance, Bovaird and Löffler (2002), pp. 21–23 (Copyright © International Institute of
Administrative Sciences, 2002), reprinted by permission of Sage Publications Ltd.
Blackwell Publishing for Table 13.2, The ‘Rhodes typology’ of policy networks, Rod
Rhodes, (1997), Understanding governance: policy networks, governance, reflexivity and account-
ability, Teaching Politics, 8, 1996: 210–222.
Journal of the American Planning Association, ‘The ladder of citizen participation’, adapted
from S.R. Arnstein (1971), Journal of the Royal Town Planning Institute, April,
pp. 177–182. Reprinted by permission.
xiv
Acknowledgements
Blackwell Publishing, ‘Modes of public participation’, Martin, S.J, and Boaz, A. (2000),
from Public participation and citizen centred local government: lessons from the best value
and better government for older people pilot programmes, Public Money and Management,
20 (2), pp. 47–54.
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xv
ACKNOWLEDGEMENTS

AIM OF THE BOOK
This book has been written with the aim of giving readers a clear picture of the current state
of play and the most important emerging issues in public management and governance. We
intend that it will help students of public issues to be better informed and managers who work
in the public domain (whether in public, voluntary or private sectors) to be more effective.
The book is also written to help readers to understand what it means to become better
citizens and, as such, to help to change the current practice of public management and
governance. In this way, we hope that the ideas in the book will help readers to make a
greater contribution to their neighbourhoods, their local authorities, their regions and the
countries in which they live – and perhaps even to the quality of life of citizens elsewhere
in the world.
STRUCTURE OF THE BOOK
The book comprises three main parts:
1 An introductory part, setting out the role of the public sector, public management and
public governance, and how these have evolved in recent years in different contexts.
2 A second part on public management for public sector organizations, exploring the main
managerial functions which contribute to the running of public services.
3 A section on governance as an emerging theme in the public domain.
LEARNING OBJECTIVES, CHAPTER BY CHAPTER
Chapter Learning objectives
This chapter is to help students:
1

■
To be aware of the different meanings of ‘public’;
■
to understand the main differences between public management and public
governance;
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xvii
A guide for the reader
■
to understand the motives for studying public management and public gover-
nance.
2
■
To be aware of recent changes in the context of public policy;
■
to understand the major paradigm shifts in public policy making in recent
decades;

■
to understand the changing role of politics in public policy.
3
■
To understand the role and scope of government;
■
to be aware of the trends in social spending and to understand the forces that
shape them;
■
to be aware of the changing composition of public spending;
■
to understand the implications that these trends have for public sector manage-
ment.
4
■
To be aware of the objectives of the first generation of public sector reforms;
■
to be aware of the results of the first generation of public sector reforms;
■
to be aware of unresolved problems of the first generation of public sector
reforms;
■
to understand differences in public sector reform trajectories of OECD govern-
ments;
■
to be able to undertake a more systemic analysis of public sector reforms.
5
■
To understand what ‘strategy’, and ‘strategic management’ mean in a public
sector context;

■
to be able to prepare a corporate strategy and business plan for their service or
organization;
■
to understand the difference between strategic management and strategic plan-
ning;
■
to understand how strategy making is different in a politically driven organiza-
tion, as opposed to strategy making in a private firm;
■
to understand how strategic management and innovation mutually reinforce each
other.
6
■
To understand the role of marketing in a public sector context;
■
to be able to prepare a marketing strategy, and marketing plan for their service
or organizational unit;
■
to understand how marketing is different in a politically driven organization
working on issues with wide-ranging public implications, as opposed to
marketing in private firms;
■
to understand the limitations of marketing in a public sector context.
7
■
To understand the meaning of contracting;
■
to understand why contracting for services has been increasing over the past
twenty-five years;

xviii
A GUIDE FOR THE READER
■
to be able to identify the pros and cons of contracting out of specific services;
■
to understand the links between contracting, competition and collaboration;
■
to understand how contracting could be used to pursue the wider socio-
economic goals of government.
8
■
To be aware of changes in governmental financial management systems and to
understand their underlying conceptual models;
■
to understand the context and content of each of the models discussed;
■
to understand how each of the models is supported by its underlying disciplines.
9
■
To be aware of the changing understanding of the significance of ICTs;
■
to be aware of the implications of managerial and institutional change associated
with ICTs;
■
to understand the need for active policies to minimize the ‘digital divide’;
■
to understand the critical importance of trustworthy processing of personal data.
10
■
To be aware of the evolution of performance measurement and management in

the public sector;
■
to understand the key concepts in performance measurement;
■
to understand the key concepts in performance management;
■
to understand the main lessons learned in performance management;
■
to be able to identify the main traps in performance management.
11
■
To be aware of the differences of quality management in the public and private
sectors;
■
to understand the key issues associated with quality measurement in the public
sector;
■
to be aware of the major quality assessment instruments used in the public
sector;
■
to understand the key obstacles to and success factors in quality improvement
in the public sector;
■
to understand how the quality of public governance might be assessed.
12
■
To be aware of the conditions leading to the recent ‘audit explosion’ in the
public sector;
■
to understand the new practices of audit;

■
to understand the changing roles of scrutiny agencies;
■
to understand the problems with and challenges to scrutiny of public sector orga-
nizations.
13
■
To understand the key concepts of public governance;
■
to be aware of how the role of governments is changing from policy making
towards policy moderating;
■
to be able to identify important stakeholders in public governance;
■
to understand networks as a specific mode of public governance.
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xix

A GUIDE FOR THE READER
14
■
To be aware of the current emphasis on leadership in public governance;
■
to be aware of the history of the study of leadership;
■
to understand the differences between leadership and management;
■
to understand the interrelationships between leadership, power and politics;
■
to be aware of the gender dimension in leadership;
■
to understand the key issues in community leadership;
■
to understand what leaders need to learn if they are to become effective.
15
■
To be aware of the arguments in favour of engagement with service users and
citizens;
■
to be aware of the main forms of public engagement;
■
to be aware of practical approaches to public engagement;
■
to understand the obstacles to effective engagement and ways of overcoming
these.
16
■
To understand the politics of equality, and the different notions of justice that

it draws on;
■
to understand how far equality and diversity policies may be viewed as simply
a matter of ‘good business practice’;
■
to be able to identify the difficulties inherent in translating policy into practice;
■
to understand how to rethink equality and diversity in the context of new forms
of governance.
17
■
To understand the reasons for the current emphasis on ethics and standards of
conduct in the public sector;
■
to understand the mechanisms by which corruption can operate in the public
sector;
■
to be aware of the rationale behind the recent move to strengthened codes of
conduct in the United Kingdom and elsewhere;
■
to understand the pros and cons of control-oriented and prevention-oriented
mechanisms to ensure ethical behaviour;
■
to understand the role of transparency as a mechanism for fighting unethical
behaviour.
18
■
To understand what counts as evidence for what purposes;
■
to understand how evidence may be used to improve public services;

■
to be aware of the obstacles to improved use of evidence;
■
to understand how evidence-based learning can be encouraged.
xx
A GUIDE FOR THE READER
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Part I
From public management to governance
Chapter 4
Public management
in flux: trends and
differences across
OECD countries
Chapter 3
The size and scope
of the public sector:

an international
comparison
Chapter 2
The changing
context of public
policy
Chapter 1
Understanding
public
management and
governance
Part II
Public management
Chapter 8
Changing roles
of public financial
management
Chapter 7
Contracting for public
services: competition
and partnerships
Chapter 6
Marketing in public
sector organizations
Chapter 5
Strategic
management
in public sector
organizations
Chapter 12

Scrutiny through
inspection and audit:
policies, structures
and processes
Chapter 11
Quality management
in public sector
organizations
Chapter 10
Performance
measurements and
management in public
sector organizations
Chapter 9
Moving to
e-government: the
role of ICTs in the
public sector
Part III
Governance as an emerging trend in the public sector
Chapter 15
Engaging with
citizens and other
stakeholders
Chapter 14
Public leadership
Chapter 13
Governance and
government:
networking with

external stakeholders
Chapter 18
Evidence-based
policy and
practice
Chapter 17
Ethics and standards
of conduct
Chapter 16
Changing equalities:
politics, policies
and practice
CHAPTER MAP
Part I forms an introduction to the key themes of the book and locates the public
sector in its political, social and economic context.
Chapter 1 examines what is ‘public’ about the public sector and about public services.
It distinguishes public management from the wider issues of public governance.
Chapter 2 explores recent changes in the context of public policy, identifies the major
paradigm shifts in public policy making in recent decades and examines the changing
role of politics in public governance.
Chapter 3 examines the size and scope of the public sector. It compares trends in the
size and composition of public expenditure across OECD countries and looks at some
of the forces that shape these trends. It then considers the implications of these trends
for public sector management.
Chapter 4 examines the objectives and results of the generation of public sector
reforms in the 1980s and early 1990s, unresolved problems in these early reforms and
the source of the new pressures for ‘public governance’ reform in OECD countries.
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From public management
to governance
Part I