Paradigms and public sector reform

Paradigms & Public Sector Reform Public Administration of Bhutan Lhawang Ugyel Paradigms and Public Sector Reform Lhawang Ugyel Paradigms and Public Sector Reform Public Administration of Bhutan Lhawang Ugyel Australian National University Australia ISBN 978-3-319-40279-6 ISBN 978-3-319-40280-2 DOI 10.1007/978-3-319-40280-2 (eBook) Library of Congress Control Number: 2016952834 © The Editor(s) (if applicable) and The Author(s) 2016 This work is subject to copyright All rights are solely and exclusively licensed by the Publisher, whether the whole or part of the material is concerned, specifically the rights of translation, reprinting, reuse of illustrations, recitation, broadcasting, reproduction on microfilms or in any other physical way, and transmission or information storage and retrieval, electronic adaptation, computer software, or by similar or dissimilar methodology now known or hereafter developed The use of general descriptive names, registered names, trademarks, service marks, etc in this publication does not imply, even in the absence of a specific statement, that such names are exempt from the relevant protective laws and regulations and therefore free for general use The publisher, the authors and the editors are safe to assume that the advice and information in this book are believed to be true and accurate at the date of publication Neither the publisher nor the authors or the editors give a warranty, express or implied, with respect to the material contained herein or for any errors or omissions that may have been made Cover illustration: © DV TRAVEL / Alamy Stock Photo Printed on acid-free paper This Palgrave Macmillan imprint is published by Springer Nature The registered company is Springer International Publishing AG The registered company address is: Gewerbestrasse 11, 6330 Cham, Switzerland For Tshoki, Yonten and Deyzang: Thank you for your love and patience! CONTENTS Introduction Part I Public Administration of Bhutan 15 Paradigms of Public Administration 17 Ideal Types in Public Administration 53 Bhutan’s Approach to Public Administration from Modernisation to the New Millennium 73 The Position Classification System and Bhutan’s Public Administration in a New Era of Governance 95 Part II Implementation and Evaluation of the Position Classification System Reforms 123 125 Evaluating the Position Classification System vii viii CONTENTS Dynamics of the Position Classification System Reforms 161 Dynamics of Public Sector Reforms 197 Conclusion 219 Appendices 235 Index 243 LIST Fig 1.1 Fig 6.1 Fig 6.2 Fig 6.3 Fig 6.4 Fig 6.5 Fig 6.6 Fig 6.7 Fig 6.8 Fig 6.9 Fig 6.10 OF FIGURES Administrative Map of Bhutan What is your perception of the PCS? (%) Source: Author’s own compilation What you think was the overall effect of the PCS on the civil service? (%) Source: Author’s own compilation Opportunities for feedback (%) Source: Author’s own compilation Measures to ensure successful transition in place (%) Source: Author’s own compilation Implementation of PCS as per Policy Document and Manual (%) Source: Author’s own compilation Perceptions of Positions and Occupational Groups (%) Source: Author’s own compilation Perceptions of the Recruitment, Selection and Promotion System (%) Source: Author’s own compilation Perceptions of HRD System (%) Source: Author’s own compilation Adequate support and resources are provided to achieve the performance targets (%) Source: Author’s own compilation Perceptions of the Remuneration and Benefit System (%) Source: Author’s own compilation 133 134 138 140 142 144 147 149 151 154 ix x LIST OF FIGURES Fig 7.1 Fig 8.1 Appendix Fig A Cultural dimensions for Bhutan Source: Author’s own compilation Public sector reform trajectories Source: Author’s own compilation Responses based on location 182 198 239 LIST Table 3.1 Table 4.1 Table 4.2 Table 5.1 Table 5.2 Table 5.3 Table 6.1 Appendix Table A Appendix Table B Appendix Table C Appendix Table D OF TABLES Ideal types of public administration Seniority-based promotions under the Cadre System Fitting the Bhutanese administrative system pre-2006 within the ideal types of public administration Objectives and aspects of the PCS Major occupational groups Fitting the Bhutanese Administrative system post-2006 within the ideal types of public administration Summary of key findings Description of respondents to the in-depth interviews Respondents by agency Regression results of the responses Respondents to the VSM 2008 by agency in Australia 55 86 88 104 105 118 156 235 237 240 241 xi APPENDICES 241 APPENDIX III: RESPONDENTS TO THE VSM 2008 BY AGENCY IN AUSTRALIA Appendix Table D Respondents to the VSM 2008 by agency in Australia Agency Numbers ACT Education and Training Directorate ACT Government ACT Government Chief Minister and Cabinet Directorate ACT Government Health Directorate AusAID Australian Customs and Border Protection Service Australian Securities and Investments Commission Comcare Commonwealth Department of Resources, Energy and Tourism Department of Education, Employment and Workplace Relations Department of Family and Community Services Department of Finance and Deregulation Department of Health Services Department of Immigration and Citizenship Department of Industry, Innovation, Science, Research & Tertiary Education Department of Justice Department of Sport & Recreation WA Department of Transport (VIC) Disability Services Commission (WA) NSW National Parks and Wildlife Service NSW Office of Environment and Heritage NT Department of Mines and Energy Queensland Government Sustainability, Environment, Water, Population and Communities Transport for NSW Victorian State Government Missing TOTAL 1 1 2 1 75 REFERENCES Krejcie, R.V., and D.W. Morgan 1970 Determining Sample Size for Research Activities Educational and Psychological Measurements 30: 607–610 RCSC (Royal Civil Service Commission) 2011 Civil Service Statistics (June 2011) Thimphu, Bhutan INDEX A absolute monarchy, 68, 87 accelerating pace, 191, 225 accountability, 26–8, 30, 31, 35, 36, 38, 39, 43–5, 56, 59, 61–6, 68, 91–2, 102, 103, 108, 119, 126, 127, 134, 141, 143, 164, 174–6, 201, 221 adaptable, 35, 182 administration, 2, 5–11, 17–45, 53–68, 73–92, 95–121, 125, 128–30, 143, 145, 155, 164–6, 169–71, 173–8, 188–91, 197, 202, 206–15, 219–21, 225, 227, 230–34 administrative arena, 2, 209 administrative cadre, 28, 86, 97, 104, 145 administrative context, 7, 8, 214, 224 administrative support cadre, 97, 145 administrative tradition, 2, 206, 209 agencification, 57 agency clientele, 63 agency heads, 63 ambiguous, 173, 181 analogy, 165 Anglo-American, 175 annual work plan, 109 apolitical, 30, 114 appendage, 161 argumentative, 127 assertive, 181 Australian National University, 131 autonomous agencies, 57, 91, 99, 119, 132, 226, 236 B bachelor’s degree, 106, 148, 180 barter economy, 81 best practice, 162, 165–7, 178, 182, 186, 213 better-performing, 201 Bhutan Civil Service Rules and Regulations (BCSR), 5, 100, 116 Bhutanese culture, 5, 152, 153, 179 bottom line, 182 Buddhist, 5, 73, 74, 78, 214, 215 Buddhist society, 186 budgetary constraints, 3, 67, 167, 175 bumps, 198, 205 © The Author(s) 2016 L Ugyel, Paradigms and Public Sector Reform, DOI 10.1007/978-3-319-40280-2 243 244 INDEX bureaucracy, 28–31, 33, 34, 54, 56, 57, 84, 85, 89–91, 106, 143, 173, 201, 208, 213, 220 bureaus, 29 C cabinet ministers, 111 cadre system, 4, 85–7, 89–92, 96–9, 104–7, 109, 112, 113, 115–17, 120, 133, 137, 139–41, 143, 145, 147, 149, 152, 155, 161–3, 165, 187, 190, 205, 210, 212, 214, 224 cadres, 85, 86, 89, 97, 104, 106, 116, 145 Canberra, 131 capacity, 26, 38, 43, 45, 80, 82, 84, 85, 99, 102, 111, 112, 114, 126, 139, 168, 174, 176, 207, 212, 222 capacity development, 99 capital expenditure, 150 capital expense, 175 career public official, 62 causal propositions, 208 caution, 36, 164, 174, 185, 207, 227 central personnel agency, 84, 173 centralizing, 37, 77, 227 champions, 163 change management, 8, 10, 112, 167–9, 220, 224, 231 chenlah, 75 China, 3, 28, 81, 174, 201 Chinese public administration, 66, 212 choe-sid, 74–80, 212 citizen-centred, 40 citizen’s charter, 34 citizens, 31, 32, 37, 39, 40, 42, 44, 45, 57–9, 61–3, 66, 114, 115, 119, 163, 164, 200 civil society, 41, 42, 58, 81, 163, 175, 207 client-customer relationship, 39 clients, 39, 40, 58 clinicians, 209 co-production, 91 code of conduct, 89, 90 coding system, 133 coherence, 180 collaboration, 40, 57, 61, 163, 164, 209 collective interests, 39 collectivism (IDV), 177, 181, 184 colonial, 1, 173, 174, 213 command and control, 36, 85 commissioner, 5, 100, 107, 119, 133, 236 Committee of Secretaries, 111 communist states, 175 community centres, 115 compassion misplaced, 153 compassionate, 153 competition, 33, 35–8, 57, 58, 101, 137, 147, 152, 158, 164, 170, 171, 181, 183, 184, 211, 223, 225 competitive examination, 27, 28, 60 complexity of work, 105 concrete historical individual, 54 conflict resolution, 45 consensual decision-making, 153 consensus, 19, 64, 173 consensus building, 45 constitution, 5, 28, 63, 81, 114, 119, 214, 236 consultation, 83, 138, 164 contextual public administration, 66 contextual realities, 167 contracting out, 33, 175 contracts, 35, 37, 64, 171 contractual obligations, 62 control, 29, 35–7, 56, 60–3, 65, 76–8, 80, 85, 167, 174, 205 convergence, 8, 11, 162, 197, 199–207, 213, 214, 225 INDEX convergence theory, 162 coordination, 5, 38, 42, 57, 83, 87, 92, 95, 109, 112, 113, 130, 131, 139, 169 Coordination Committee of the Council of Ministers (CCM), 87, 89, 92, 95, 100, 111 core competencies, 109, 117, 150, 152 corollary, 67, 188 cost cutting, 35, 110, 176 cost efficiency, 38 Council of Ministers, 83, 87, 95 criticism, 7, 22, 31–2, 37–9, 142, 162, 180, 184, 189, 208 cross-country, 2, 9, 151, 179, 206, 207 cultural change, 150, 188 cultural homogeneity, 177 culturalist, 178 culturally sensitive, 186 culture, 2, 3, 5, 7, 8, 10, 17, 23, 66, 84, 131, 133, 138, 152, 153, 167, 171–4, 177–80, 182, 184–8, 190, 205, 207, 209, 211, 214, 224, 225, 228, 230, 232 culture-aware, 177 customer orientation, 33 customer satisfaction, 38, 39, 58, 114 D decentralization, 33, 76, 82, 107, 112, 120, 131, 148, 165, 172, 201, 227 decentralisation of authority, 107 decision-making, 7, 30, 40, 45, 65, 82, 89, 90, 92, 109, 111, 127, 130, 131, 137–8, 153, 163, 200, 222 degrees of association, 185 deliberative democracy, 58 delinked, 116, 120, 226, 227 245 delivery of services, 63, 64, 102, 114 democratic constitutional monarchy, 81 democratic patronage, 59 democratic state, 27, 114 departments, 63, 83, 84, 91, 96, 112 dependence, 174, 213 deregulation, 33 desi, 74–6 detrimental, 3, 39, 67, 167 developing countries, 2, 34, 55, 67, 162, 163, 165–7, 172, 174–6, 202, 207, 220, 230 Development Wing, 82 deviated pathways, 198 deviation, 198, 199, 202 diarchal, 73–7 digital-era governance, 41 dimensions of policy success, 128, 205 disaggregation, 35, 38, 57 disastrous, 3, 67, 167 discourse communities, 165 discretionary, 35, 37 disjoint, 174, 189 distributing spoils, 27 divergence, 8, 11, 23, 197, 199–201, 203–7, 213, 225 diversity, 22, 23, 40, 45, 180, 214 divested, 116 dominant paradigm, 21 donors, 99, 150, 174, 175, 211 down-to-earth practice, 190, 208 downsizing, 57, 201 drawbacks, 65, 164 drivers of change, 8, 161–9, 219, 220, 224–6 dronyer, 74, 75, 77–9 Drukpa Kargyupa, 73, 74n2 dynamics, 6–8, 10, 11, 40, 128, 154, 161–91, 197–215, 219, 223–5, 231 dynamism, 33 dysfunctional, 31 246 INDEX dzongkhag, 79, 82, 83, 226 dzongkhag yargay tshogchung (DYT), 82 dzongpons, 75, 77–9 dzongs, 75, 79, 80 E early retirement scheme, 110 Eastern world, 23 economy, 32, 33, 56, 81, 162, 176, 200, 201, 206, 213 effectiveness, 34–6, 57, 85, 127, 134 efficiency, 26, 27, 29, 35–9, 43, 44, 56, 57, 60, 68, 85, 95, 102–4, 108, 117, 128, 158 egalitarian, 59, 177 elected officials, 32, 44, 62, 63 elections, 35, 45, 58, 113, 114, 119, 135 elite, 2, 67, 78, 174, 200 empowering, 40, 57, 168 empowering citizens, 40 emulation, 165, 166 entrepreneurial, 32, 37, 173 entry-level, 4, 85, 98 episteme, 17, 18 epistemological equal pay for equal value of work, 13, 105, 113, 143, 150, 155, 156 equifinality, 199 equity, 26, 28–31, 37, 43–5, 68, 117, 154, 176, 181, 201 ethical performance, 178 ethos, 43, 44, 171 European, 2, 173, 175, 190, 208 evaluation, 7, 8, 10, 92, 97–9, 102, 105, 108, 109, 117, 125–58, 170, 174, 187, 189, 204, 214, 219–22, 224, 228, 230–2 evidence-based, 127 executive powers, 81, 87, 92, 95, 202 executives/specialists (EX/ES), 105 exemplar, 6, 9, 18–20, 22, 24, 26, 28, 34–7, 41, 43–5, 53–4, 220 expenditure, 42, 60, 66, 83, 150, 175, 201 ex post analysis, 127 external agents, 162, 167 F face-to-face rating, 152 factor evaluation system, 98, 99 failures, 3, 43, 127, 169, 172, 189, 203, 205 fairness, 39, 40, 66, 108, 134 familial, 79, 120, 184 fashionable, 167 favouritism, 117 federal, 173, 180 femininity, 181 final stages, 162 financial implications, 154, 158, 223 fine-tuning exercise, 113 first order, 21, 103, 169 fiscal environment, 211, 224 Five-year Plan, 150, 181n3 flatter, 57, 181 flexible, 31, 34, 35, 61 focal persons, 7, 99, 101, 111, 130, 144, 145, 155, 168, 222 fragmented, 38, 74, 77 friendship, 184 frugality, 182 functionalist, 178 G G2C initiative, 119 gender roles, 181 German-Prussian, 175 gewog, 82, 83 gewog yargye tshogchung (GYT), 82 globalisation, 8, 31, 32, 165, 197, 200, 202, 206 INDEX GNH state, 102 goal-driven, 127 goal-oriented, 127 goals, 35, 36, 39, 42, 59–61, 92, 102, 108, 125, 134, 139, 149, 158, 162, 164, 168, 170, 201, 202, 211, 222, 224, 229 Good Governance exercise, 95, 96, 98, 102, 137, 202 Good Governance Plus exercise, 102 good PA, 24, 213 governance, 2, 10, 23, 24, 32, 40–5, 57, 58, 65–7, 75, 91, 95–121, 128, 163, 175, 176, 201–3, 207, 221, 230 government-centred, 40 grafted, 210 gungda woola, 91 gyaldon, 83 gyaltse, 83 H head of state, 74, 75, 81 heavy-handed, 58 hegemonic forces, 175 heroes, 163, 181 heuristically, 202 hierarchy, 2, 22, 23, 29, 30, 54, 57, 63, 65, 67, 85, 89, 132, 145, 175, 183, 188, 201, 212 high-performing, 148, 214, 229 high-powered incentives, 151 high quality performance, 39 historical institutionalism, 213 historical narratives, 172 historicist, 18 Hofstede, 8, 9, 133, 177–82, 183n1, 186, 211, 225, 232 hollow state, 39 homogenous, 180, 207 Hood, Christopher, 34 horizontal coordination, 57 247 horizontal reforms, 230 HR committees, 229 HRD Committee, 100 HR divisions, 112, 132, 155 human resource, 2, 34, 37, 84, 85, 91, 96, 97, 101–3, 105, 108, 111, 112, 115, 120, 131, 132, 148–9, 152, 155, 158, 172, 175, 177, 198, 205, 227, 229 Human Resource Officers, 101 hybrid, 6, 7, 10, 25, 64, 65, 68, 87, 120, 155, 169, 188, 190, 191, 209–12, 221, 225, 231 hybridisation, 165, 166 hydropower development, 82 hype, 137, 162, 214 I IBM, 179, 180 idealised practices, 190 idealized model, 208 ideal pathway, 198, 199, 205 ideal type, 6, 8–10, 24, 25, 53–68, 81, 86, 87, 89, 98, 100, 115, 116, 119, 137, 189, 190, 202, 208, 211, 219–21, 230–1, 233, 234 identities, 6, 22, 76, 130, 132, 179, 186, 239 imitate, 62, 162 immediate family, 181 impartiality, 38, 40, 66, 85, 88, 118 implementation, 2, 3, 7, 8, 10, 30, 38, 40, 64, 67, 82–4, 92, 96, 100, 110–14, 119, 120, 126, 129–31, 134–7, 139–53, 155–8, 162–4, 167–9, 171–4, 176, 182, 185–90, 197–200, 203–7, 209–11, 213, 214, 219–26, 228, 230–3, 235–6 implementation habitats, 171 inalienable, 184 248 INDEX incentive, 29, 36, 39, 42, 54, 59–61, 91, 97, 149, 151, 152, 158, 171, 176, 206, 220 inclusiveness, 45 incommensurability, 21, 220 in-country training, 108 incremental, 10, 24, 25, 103, 107, 115, 169–71, 190, 204, 205, 221, 230 independent, 1, 24, 38, 114, 239 in-depth interviews, 129–31, 133, 235–6 Indian administrative system, 85, 182 Indian advisors, 84 indigenisation, 173, 213 individualism, 184, 211, 225 individual performance, 92, 102, 149, 158 Indulgence Versus Restraint (IVR), 180 inefficiency, 27, 29 inequity, 27, 29 inflexible, 31 informal economy, 176 in-groups, 181 in-house experts, 139, 168, 212 in-kind taxes, 80 innovative, 35, 37 inspiration, 115, 165, 174 institutional context, 171, 172, 190 institutional economic theories, 33, 37 institutional monocropping, 176 institutions, 3–5, 8, 10, 23, 32–7, 39, 45, 54, 61, 66–8, 76, 78, 82, 84, 91, 92, 96, 110, 112, 126, 149, 163, 165–8, 171–8, 181, 190, 201, 207, 208, 211, 213, 224 integrity, 4, 38, 45, 66, 85, 90 interaction, 8, 10, 23, 40, 138, 164, 169–71, 219–21, 224–6, 233 interest group, 63, 110 international advisor/consultant, 7, 99, 111, 130, 131, 142, 146, 150, 166, 167, 182, 185, 186, 212, 224, 235–6 international institutions, 8, 32, 165, 174, 175 interplay, 3, 178, 200 interpretivist, 129 interviewees, 130, 131, 135, 148 Islamic public administration, 24, 66, 78 isolation allowance, 110 isomorphic transference, 203 J Je Khenpo, 74, 79, 212, 214 job definitions, 27 job description, 97, 98, 101, 105, 131, 137, 143–6, 155, 223 Job Description Committee, 100 job evaluation process, 105 job-mapping, 112, 113, 131, 140, 141, 155, 187 joined up government, 23, 41, 43 judiciary, 5, 82, 85, 110, 236 K kalyon, 74, 75, 77 ked-dzog, 215 key stakeholders, 44, 59, 187, 224 Kingdon, John W., 161 knowledge and skills, 155, 156 knowledge-based economy, 32 L latecomer advantage, 227 layered, 10, 24, 25, 68, 87, 155, 178, 188, 191, 209–12 layering, 10, 25, 65, 68, 87, 120, 188, 191, 210, 221 lean, 35 leap-frogging, 227 learning, 59, 126, 165, 166 legal, 28–30, 33, 34, 43, 54, 62, 78, 110, 190, 214 INDEX legal sanctions, 62 legislative committees, 110 legitimacy, 43–5, 57, 73n1, 128, 162, 174 legitimise, 108, 162 lhengye tshok, 75, 78 lifecycle, 19 Likert Scale, 133 line agencies, 63 locomotive, 176 lofty theory, 208 logic, 40, 60, 61, 67, 167, 176 longevity, 59, 61 long-standing, 197 long-term orientation (LTO), 180, 182, 186 long-term program, 136 lopons, 212, 214 low income countries, 207 loyalty, 4, 59, 78, 79, 85, 89, 90, 116, 181 M machination process, 30 machine, 30 major occupational groups, 104–6, 113, 116, 132, 135, 143, 165, 170, 236, 238–40 management, 2, 5–7, 10, 25, 27–30, 32–8, 40–4, 56–8, 60, 61, 68, 74, 84, 90, 92, 98–109, 116, 117, 120, 126, 129, 136, 141, 142, 145–53, 155, 158, 162, 164, 165, 167–75, 177, 184, 185, 187, 188, 190, 197, 199–201, 203, 205, 211, 213–15, 220, 222–29, 231, 233, 236, 240 management by objectives, 177 managerialism, 32, 34, 35 manifesto, 135 Manpower Department, 84 manuals, 59, 60 249 market, 2, 23, 31–40, 43, 44, 54, 57, 58, 61, 62, 64, 65, 67, 154, 167, 171, 175–7, 182, 188, 190, 200 market-based, 32, 35, 36, 58 market liberalisation, 31 market-like mechanism, 61, 154 market-oriented, 2, 32, 38, 200 masculinity (MAS), 177, 180, 183n1 master’s degree, 106, 135, 145, 238 material success, 181, 185 McKinsey and Company, 115 Media Committee, 100 merit, 27, 28, 33, 60, 61, 85, 92, 97, 103, 137, 146, 147, 149, 150, 158, 185 meritorious promotion, 148 mindset, 138, 168, 185 minimum qualification, 106, 145, 146, 215 minister, 7, 30, 37, 74, 75, 83, 84, 87, 91, 96, 111, 114, 115, 119, 134, 135, 150, 172 ministries, 83, 84, 86n7, 87, 91, 96, 99, 111, 115, 119, 132, 236 Ministry of Finance, 111, 237 Ministry of oreign Affairs, 132 misfit, 67, 167, 176 mismatch, 142, 171, 189, 208, 211, 225, 233 mistake, 7, 127, 134 mixed-method, 10, 128, 129, 219, 231 modest, 181, 185 monarchy, 68, 73, 74, 76–7, 80, 81, 84, 87, 92, 116, 120, 212, 232 monastic, 76, 78, 213 monetised economy, 81 monitoring and evaluation, 108 monopolistic, 35 Monumentalism Index (MON), 180 Moore, Mark H., 43, 44 morale, 4, 40, 85, 137 multicultural public administration, 66 250 INDEX multidisciplinary, 22, 128 multilayered, 40, 56 multi-organisational, 164 multiple interdependent actors, 45, 61 multiple-stakeholder, 41 multiple streams framework, 161 multiple transactions, 38 mutual competition, 181 N National Assembly, 82, 83 national culture, 3, 5, 171, 177, 179, 211 National Statistical Bureau (NSB), 132, 237 nation-state, 172, 212 natural sciences, 6, 9, 18, 20, 21, 230 negative views, 133, 222 neo-classical economics, 31, 33 neo-institutionalist, 178 neo-liberal, 173 nepotism, 117 network, 2, 23, 40–5, 54, 59, 65, 67, 99, 163, 165, 166 network governance theory, 44 network theory, 45, 65 neutral, 30, 62, 134 new public governance, 23, 41 new public management (NPM), 6, 7, 23, 32–4, 55, 100, 147, 162, 201, 214, 220 new public service, 23, 58, 102, 137 nodes, 131 non-officers level, 139 non-performers, 153, 185, 214, 223, 228 non-randomness, 240 Nordic, 175 normal policy-making, 219, 223 novel theory, 20 NPM-inspired, 186 npm-related, 115, 149, 166, 173, 175, 176, 200, 204–6, 211, 214, 224, 226 NVivo software, 131 nyerchen, 75, 80 nyikem, 75 O officialdom, 29, 143 officiating allowance, 110 old timers, 136 one-best-way, 60 ontological, 204 opaque, 31 open competition, 101, 137, 147, 152, 158, 170, 184, 223 open-ended questions, 131, 133 operations (O), 148 opinion-based, 128 opinion survey, 131, 133, 222, 231, 236–40 O4 positions, 132 order of change, 21, 25, 169 organisational capacity, 43 organisational development (od) exercise, 102, 114, 189, 288 organisational factors, 206 organisation theory, 20, 22, 199 organizational patronage, 59 outcome, 7, 38, 43, 44, 102, 114, 115, 125–8, 154, 162, 169, 177, 198, 205–7, 214, 232 out-of-turn promotions, 229 outputs, 33, 34, 36, 38, 43, 61, 92, 108, 109, 117, 149, 150, 152, 170, 171, 190, 214 outsourcing, 35, 116, 174, 183, 209 outstanding, 109, 152, 158, 228 overgeneralisation, 207 oversight, 26, 45, 62 overtime payments, 110 INDEX P palace, 77, 79, 80, 83, 84, 90 paradigm, 6–10, 17–45, 53–68, 73–92, 95–121, 125–58, 161–91, 202, 203, 205, 208–12, 214, 215, 219–21, 223–5, 227, 230–1, 233 paradigmatic change, 6, 10, 20, 25, 26, 169, 220, 221, 227, 231 paradigm crossing, 21 paradigmettes, 7, 25, 65–8, 87, 119, 188, 212, 215, 221, 233 paradigm-shift policy, 103, 157, 169–71, 204, 205, 223 parent agency, 132 Parliament, 65, 81, 87, 95, 119, 172, 202, 236 parliamentary democracy, 81 Paro penlop, 75–9 parsimony, 35, 61, 110 participative, 183 participatory, 91, 163, 164 particularistic, 58 parties, 27, 62, 114, 135 partnership, 33, 36, 42, 43, 59, 115, 175, 179 paternalistic, 90 path dependency, 213, 214 patronage, 26–30, 54–7, 59, 62, 63, 77–9, 82–4, 87, 89–92, 98, 114, 117, 119–21, 146, 165, 170, 188, 210, 212, 220, 221, 231 patron-client relation, 58 PCS manual, 101 PCS policy document, 100, 143 PCS position directory, 100 penlops, 75, 76, 78, 79 people’s participation, 91 perceptions, 130, 131, 133–6, 147, 149, 154, 163, 166, 205, 219, 222, 232 performance 251 appraisal, 60, 102, 106, 108, 109, 149, 153, 171 bonus, 110, 119, 158, 229 compacts, 61, 115, 175, 226 evaluation system, 92, 97 indicators, 36, 61, 64, 97, 149–51 management, 5, 33, 92, 100–3, 108–9, 111, 158, 165, 177 pay, 110, 229 Performance Management Committee, 100 performance management system, 34, 60, 61, 92, 101–3, 108, 109, 117, 142, 149, 150, 152, 153, 158, 170–2, 174, 184, 185, 187, 188, 190, 199, 203, 205, 211, 214, 215, 221, 223–6, 228, 229, 233 performers, 153, 185, 214, 223, 228, 229 periodic ratings, 157, 158 perseverance, 181, 182, 186 personal relationships, 59, 78, 109, 172 personal space, 185, 187 pilot survey, 131, 179 planned change approach, 189, 228 plural state, 45 policy advice, 37 policy cycle framework, 131 policy evaluation, 125–7, 134, 222, 232 policy execution, 64 policy formulation, 7, 40, 63, 126, 161, 163 policy formulator, 64 policy studies, 189 policy transfer, 3, 8, 10, 165–7, 177, 186, 203, 212, 220, 224, 233 policy windows, 161 political accountability, 63 political dimension, 32, 65, 127, 128, 134, 232 252 INDEX political leaders, 26, 62, 76 politicized, 167 politics/administration dichotomy, 23 polity, 73, 81, 91, 120, 227 pomp, 184 poor rating, 152 POSDCORB, 209 position classification system (PCS), 4, 86, 95–121, 125–58, 161–91, 197, 219 position level, 105, 113, 115, 132, 135, 140, 143, 157, 229, 236, 238–40 positive views, 133, 222 positivist, 129 postal system, 132 post-bureaucratic, 32, 116, 183 post-colonial, 173 post-modern, 201 post-paradigm, 20 post-reform evaluation, 8, 125, 222 Power Distance Index (PDI), 180, 181, 183, 186 preconditions, 173, 176, 177 predictive, 180 predominant characteristics, 24–5 pre-paradigm, 20, 54, 220 prerequisites, 3, 166, 211, 224 prime minister, 7, 87, 95, 111, 114, 115, 119, 134, 135, 226 principal-agent, 34–7 private sector, 30–9, 42, 44, 81, 82, 95, 116, 120, 131, 149, 188, 208, 220, 227 privatisation, 32, 33, 36, 64, 116, 226 probity, 40, 66, 176 problematic, 162, 167, 169, 171, 179 procedural, 213 proceduralist, 18 process dimension, 128, 232 productivity, 39, 61, 92, 102, 154 professional, 26, 27, 34, 35, 37, 45, 56, 58, 60, 62, 63, 80, 90, 105, 107, 117, 134, 136, 137, 140, 142, 145–7, 153, 157, 158, 171, 178, 184, 185, 187, 188, 199, 201, 223, 229, 236, 240 professional accountability, 62 professional/management (p), 105–7, 145, 146 profit and loss, 38 profit-maximising, 39 programmatic dimension, 7, 127, 128, 205, 232 pro-market, 200 promotion system, 85, 97, 102, 103, 107, 111, 115, 146–8, 190, 205, 221 public choice, 23, 33–6, 39 public interest, 31, 36, 43, 44, 58, 175, 206 public order, 91, 119 public participation, 55–9, 79, 88, 90–1, 113, 119, 221 public-private, 36, 43, 115 public-private partnership, 36, 43, 115 public sector, 1–11, 23, 25, 31–40, 44, 56, 57, 60, 62, 64, 66–8, 82, 91, 101, 102, 115, 125, 126, 128, 135, 137, 141, 161, 162, 165–7, 171–8, 182, 183, 186, 188–91, 197–215, 219, 221–5, 227, 230, 288–94 Public Sector Model, 200 public sector reform, 6–11, 17–45, 53–68, 73–92, 95–121, 125–58, 161–91, 197–215, 219–34 public value, 43–5, 230 public value management (PVM), 23, 25, 41, 43, 44 public value pragmatism, 43 purchaser/provider, 57 pure NPM-countries, 210 INDEX puzzles, 6, 18, 20, 25–9, 31–3, 42, 44, 56, 62, 68, 220 pyramidal, 183 Q qualitative, 18, 129 quality of life, 181, 185 quantitative, 35n2, 129 quasi-governmental, 188 quasi-paradigms, 25, 41 R Rabdey netens, 215 random, 132 rational actors, 39 rational decision-making, 127 rationalistic, 127 rational/legal authority, 29, 30, 59 reality, 9, 20, 23, 31, 53, 66, 87, 129, 137, 155–7, 167, 188, 189, 198, 208, 211, 219, 223, 225 Rechstaat, 206 reciprocity, 58 Recruitment and Selection Committee, 100 rectification, 198 rectify, 226, 228, 233 reform patronage, 59 regulations, 7, 29–31, 33, 59, 60, 63, 65, 89, 90, 100, 116, 117, 134, 149, 228 reinventing government, 33 relative historical concepts, 54 Remuneration and Benefits Committee, 100 research constructs, 177 resistance, 139, 148, 169, 176, 232 resource dependency model, 162 responsive governance, 23 253 responsiveness, 26, 33, 35, 55, 62, 88, 118, 209 revisionist, 127, 128, 232 rhetoric, 25, 137, 156, 157, 162, 174, 189 right person for the right job, 105, 107 right-sizing, 110 right-wing, 206 ritual, 162 road map, 36, 138 rowing, 57, 64 Royal Advisory Council, 82, 82n4, 83 Royal Charter, 85, 98 Royal Civil Service Commission (RCSC), 4, 5, 85, 86, 130, 163, 236, 238 royal edict, 87 rule-bound, 29, 59, 174 Rules Committee, 100 S sacrosanct, 182 scarcity allowance, 110 Scientific cadre, 97 scientific management, 23, 28, 30, 56, 60, 209, 220 scope and effect of work, 105 second order, 21, 109, 169 secretary, 82, 83, 91, 96, 99, 112, 143, 184 secretary (ex1), 132, 143 self-consciousness, 181 self-interest, 36, 40 self-rating, 152, 187 self-regulation, 63 self-serving, 31, 39 semi-structured, 130 seniority, 86, 89, 103, 104, 135, 145, 147, 149, 150, 181, 184, 215 separation of roles, 64 254 INDEX servant–master relation, 57 services, 4, 5, 7, 10, 23, 26, 27, 30–3, 35–7, 39, 40, 42–5, 55, 57, 58, 61–6, 77, 79–81, 83–5, 89–92, 95–102, 105–8, 112, 115–20, 129–31, 133–7, 139, 142, 143, 145–7, 149, 150, 152, 153, 155, 157, 158, 162, 163, 169–75, 182–8, 191, 199, 201, 203, 207, 209–11, 213, 214, 219, 222–4, 226–31, 233, 236–8, 240, 241 serving, 31, 39, 40, 57, 66, 91, 145, 199 Shedra Udzins, 215 silo, 42 sincerity, 184 single organisations, 164 six-monthly targets, 109 smaller government, 33, 36 smallness, 153, 184, 185, 214 small society, 153, 185 snowballing, 130 social constructivist, 127 social injustice, 39 socialist economies, 174 social sciences, 6, 9, 17–22, 25, 177, 178 social status, 179 societies, 31, 65, 173, 175 society-centred, 40 sociocultural, 178 socio-economic development, 73, 80–5, 120, 191, 221 specialisation, 28, 56, 143, 144 spectrum, 127, 222 spoils system, 30, 55, 56, 59, 78, 88, 118 stagnation, 97, 113, 140, 145, 146, 156, 157, 229 standard operating procedure, 21, 62, 175 state-society linkages, 40, 58 status conscious, 184 steer, 26, 62 steering, 57, 64, 173 step-wise career, 84 strategic triangle, 43, 44 stratified random sampling, 132 strengthened, 31, 64, 134 structural changes, 82 study leave, 136, 148 study visits, 7, 99, 166 subcommittees, 100, 111 successes, 3, 39, 127, 128, 133–5, 141, 163, 164, 170, 181, 185, 189, 203, 205, 222, 224, 232 summative review forms, 109 superimposed, 64 supermarket state, 210 supervision, 27, 29, 62, 63, 77, 79 supervisory/support (s), 105, 107, 148, 229, 236 sycophancy, 183 symbolic, 19, 162, 177 syndrome, 174 system-level change, 189, 228 T tactical patronage, 59 targets, 26, 34, 35, 37, 61, 62, 92, 97, 108, 109, 115, 117, 132, 150, 151, 157, 158, 170, 171, 211, 223–5, 229 tax reducing, 176 Taylor, 28–30, 56, 213, 220 templates, 24, 233 tender, 181 tenderness, 185 tenure, 34, 60, 79, 89, 107, 116, 147, 149, 154 tha damtshig, 179 theoretical convergence, 202, 203, 207 INDEX theoretical underpinnings, 24, 26, 41, 44 theory-based, 209 Thimphu, 75, 77, 132, 136, 237–40 third order, 21, 25, 103, 169 Thomas Kuhn, 6, 9, 18, 220 thrift, 181, 186 Tibetan Buddhism, 4, 5, 68 top-down, 56, 63, 89 traditional public administration (TPA), 6, 23, 26–8, 54, 55, 81, 83, 88, 96, 118, 143, 170, 176, 204, 220, 227 trajectories, 2, 6, 11, 197, 198, 204, 205, 225 transaction cost, 34–6, 38, 65 transformation, 110, 127, 162, 202, 212 transition, 20, 73, 80, 81, 87, 112, 113, 131, 137–41, 155, 167, 168, 170, 173, 187, 198, 205, 212, 220, 222–4 transition management, 131, 155, 222 transnational networks, 2, 165 trickles down, 170 tripartite participation, 76 Trongsa penlop, 76, 77 Tsawa Sum, 89, 90, 117 typology, 9, 10, 53, 56, 103, 116, 202, 219–21, 231 U Ugyen Wangchuck, 77 Uncertainty Avoidance Index (UAI), 180 unfriendly, 150 uniformity, 4, 26, 30, 56, 60, 85, 97, 137, 149, 155, 156 unilinear development, 171 uni-organisational, 180 255 unique response identity number, 132, 239 unitary, 173 universal applicability, 171 unresponsive, 31 unstable, 139, 169 user charges, 36 utility maximisers, 36 V vacant position, 107, 147, 156, 157 value-neutrality, 127 values, 2, 3, 5, 7–10, 17, 19, 23, 25, 27, 33, 38, 40, 41, 43–5, 58, 63, 66–8, 84, 103–5, 110, 111, 113, 114, 117, 127, 131–3, 143, 150, 155, 156, 162, 168, 177–87, 201, 209, 211, 220, 225, 230, 232 Values Survey Module (VSM), 9, 133, 179–82, 232 vertical coordination, 38 vertical reforms, 230 vested rights, 184 virtues, 181, 182 volunteer, 99, 101 Volunteer Service Abroad (VSA), 101 W Wangchuck, Jigme, 79, 80 Wangchuck, Jigme Dorji, 80, 81 Wangchuck, Jigme Singye, 81, 82, 85, 87, 113 weakened, 7, 76, 134 Weberian bureaucracy, 34, 90 welfare state, 64 Western blueprints, 176 Western world, 23, 27 256 INDEX whole-of-government, 23, 41, 42, 120, 227 wicked problems, 45 Woodrow Wilson, 28, 30 World Average, 182, 183, 185 world view, 9, 18–20, 22, 53 world waves/stages, 206 Z Zhabdrung, 73n1, 74–6, 79, 80, 82 Zhabdrung Nawang Namgyel, 73–5, 78, 80, 212, 233 zhapto lemi, 91 Zhung Dratshang, 213, 214, 233 zimpon, 74, 75, 77–9 .. .Paradigms and Public Sector Reform Lhawang Ugyel Paradigms and Public Sector Reform Public Administration of Bhutan Lhawang Ugyel Australian... Governance and Public Sector Reforms in Asia: Paradigms, Paradoxes and Dilemmas In Governance and Public Sector Reforms in Asia: Paradigm Shifts or Business as Usual, ed Anthony B.L. Cheung and Ian... (Jones and Kettl 2004) BHUTAN AND PUBLIC SECTOR REFORM Amidst such a flurry of public sector reform initiatives, Bhutan, a small, land-locked country wedged between China to its north and India