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Textbook Public Administration Theories Instrumental and Value Rationalities 1St Edition Lisheng Dong Auth Ebook All Chapter PDF
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Public Administration Theories
Also by Lisheng D ong:
Lisheng Dong, Hanspeter Kriesi, and Daniel Kübler, eds. Urban Mobili-
zations and New Media in Contemporary China (2015).
Lisheng Dong, Zhengxu Wang, and Henk Dekker, eds. China and the
European Union (2013).
Lisheng Dong, ed. International Research in Public Administration: A
Collection of IASIA Best Papers, in both English and Chinese (2014).
Lisheng Dong and Grunter Heiduk, eds. EU’s Experience in Integration:
A Model for ASEAN + 3? (2007).
Public Administration Theories
Instrumental and Value Rationalities
Lisheng Dong
PUBLIC ADMINISTRATION THEORIES
Copyright © Lisheng Dong, 2015.
Softcover reprint of the hardcover 1st edition 2015 978-1-137-53643-3
All rights reserved.
First published in 2015 by PALGRAVE MACMILLAN® in the United States—a
division of St. Martin’s Press LLC, 175 Fifth Avenue, New York, NY 10010.
Where this book is distributed in the UK, Europe and the rest of the world, this
is by Palgrave Macmillan, a division of Macmillan Publishers Limited, registered
in England, company number 785998, of Houndmills, Basingstoke, Hampshire
RG21 6XS.
Palgrave Macmillan is the global academic imprint of the above companies and
has companies and representatives throughout the world.
Palgrave® and Macmillan® are registered trademarks in the United States, the
United Kingdom, Europe and other countries.
Design by Amnet.
10 9 8 7 6 5 4 3 2 1
To commemorate the marriage of my son Jinglun Dong
with Tongyu Wu on July 12, 2014.
Contents
List of Figures ix
List of Tables x
Foreword xi
1 Introduction 1
Part I Rationalities 23
2 Instrumental and Value Rationalities of Public
Administration 25
Notes 273
Bibliography 277
Index 293
List of Figures
Martin Painter of the City University of Hong Kong. We have jointly car-
ried out research projects comparing China’s administrative reforms with
other countries since 1996 and published several articles in international
peer-reviewed journals.
Reviewing the 120 odd years of the development of Public Admin-
istration theories from the perspective of instrumental and value ratio-
nalities is a new attempt. I expect to improve the theoretical framework
and argumentations of the book with criticisms from colleagues on its
academic soundness. As to details, I acknowledge there remain many for
further work.
Lisheng Dong
Beijing, December 10, 2014
4
Chapter 1
Introduction
of Public Administration has its own rationale and model. This research
approach shares similarities with schools of thought theory, for both of
them differentiate Public Administration according to their consistency.
However, the concept of “paradigm” touches upon deeper subjects than
“school of thought.” Two representative paradigm theories include those
of Owen E. Hughes, i.e., traditional model of Public Administration and
model of public management (Hughes 2007:259–262). Based on reviews
of American public administration practices and theories, Vincent Ostrom
developed two paradigms, namely, the model of bureaucratic adminis-
tration and democratic administration. The former one is featured with
the sole authority and hierarchy, and the latter one overlaps jurisdiction
and decentralized authority. The scholar believes the progression from
bureaucratic administration to democratic administration is equal to a
Copernican revolution in Public Administration while the inverse course
means retrogression (Ostrom 1999:170).
Three-Paradigm Theories: Chen Zhenming believes Public Adminis-
tration has gone through three changes of paradigms: Traditional Public
Administration, New Public Administration, and New Public Management
(Chen Z. 1999:79). Denhardts also propose a three-paradigm theory that
consists of the old Public Administration, New Public Management, and
New Public Service (Denhardt and Denhardt 2004:25). Yang Hongshan
thinks that the development history of Public Administration has witnessed
the emergence of various research orientation and theoretical paradigms
such as constitutionalism, public management, and public policy. To over-
come the limitations of Public Administration theories of public man-
agement, and public policy, it is necessary to continue focusing on and
elucidating theories of constitutionalism (Yang 2004:33). Lu Ming consid-
ers that during decades of development and evolution, public management
has undergone three changes in its core paradigm. To put it specifically,
it has gone from the initial “efficiency”-core public management, to the
interim “equity”-core public management, and finally to the recent New
Public Management “with market coordination” as the core (Lu 2001:34).
Four-Paradigm Theories: From the two dimensions of value appeal and
object of study, Mao Shoulong and Li Wenzhao have resummarized and
interpreted paradigms of Public Administration theories and put forward
the view of four paradigms: the bureaucratic administration, New Public
Administration, New Public Management, and Democratic Administra-
tion (Mao 2006:13). Jan-Erik Lane also makes a point of four-paradigm
transition: classical approach, management approach, policy approach,
and New Public Management approach (Lane 2004:41). From the per-
spective of social sciences paradigms, Gu Guanghai explains the com-
petitive existence of Public Administration paradigms: It has gone from
constitutionalism to managerialism, then returned to constitutionalism
on the basis of management, and finally to the diversified perspectives
6 Public Administration Theories
Five elements Core value Assumption about Methodology Government role Disciplinary positioning
human nature
Positions in Public Soul of Public Logical starting Pivot of studies Concrete reflection Determinant of
Administration Administration point of Public of Public of Public development tendency
Administration Administration Administration of Public Administration
function in studies
practice
14 Public Administration Theories
the New Public Service theory is less in value rationality while its
instrumental rationality is somewhat stronger.
(g) Since early twenty-first century: The Holistic Governance theory
originated in 1997 when Perri 6 published Holistic Government. He
also published Governing in the Round: Strategies for Holistic Gov-
ernment (1999) and Towards Holistic Governance: The New Reform
Agenda (2002). This theory attracted attention same as the Public
Value Management in the early twenty-first century. Compared to
the NPM, the Holistic Governance cares more about the merger of
the instrumental and value rationalities. On the basis of instrumental
rationality, it strives to converge with the value rationality.
(h) Since early twenty-first century: The Public Value Management
came to prominence in 1995 when Mark H. Moore published Cre-
ating Public Value: Strategic Management in Government. He also
published Public Value: Theory and Practice (2010) with John Be-
nington and Recognizing Public Value (2013). As noted previously,
this theory goes hand in hand with the Holistic Government theory
in the early twenty-first century. Compared to the New Public Ser-
vice theory, the Public Value Management theory cares more about
the merger of the value and instrumental rationalities. On the basis
of value rationality, it strives to realize the merger with the instru-
mental rationality.
For a more explicit reference, views and analysis mentioned above can
be seen in Table 1.2.
Note: The years of all publications listed refer to their first editions.
FIN