Topic 4 Further Reading Kramer Beyond Max Weber
Topic 4 Further Reading Kramer Beyond Max Weber
Topic 4 Further Reading Kramer Beyond Max Weber
Were always talking about efficiency, productivity, restructuring and accountability. And to the ordinary
citizen this means little. What the citizens want to hear is honesty, service You have to communicate with
people at an emotion level -- the issues that are confronting them as ordinary citizens (Delegate to OECD
Symposium, cited in Lau, 2000, p.59).
All governance is people governance. All public service is people service. Its all people.
Relationships are the DNA of governance. Without people who can develop trusting
relationships with other people there is no governance. Governance is more than the
machinery of public administration and more than impartial cost-benefit analysis. At the
1996 OECD Ministerial Symposium on the Future of Public Services, governance was
defined entirely in terms of relationships. Governance, concluded the OECD ministers,
encompasses the set of relationships between governments and citizens, acting as both
individuals and as part of or through institutions, e.g., political parties, productive
enterprises, special interest groups and the media (Lau, 2000, p. 112). Relationships are
at the heart of governance. To the extent that public administration mirrors the hearts and
minds of people, it is governance. To the extent that public administration is disconnected
from people, it is not governance. Public administrators are much more simply human
than otherwise. Like the rest of us, public administrators are people, too.
1.0. Relationships are the DNA of Governance
If relationships are the DNA of governance, I want to pose a question that is rarely asked
in schools of public administration in Central and Eastern Europe: what, exactly, would
be the value for governance of public administrators who can build relationships of
mutual understanding and trust with:
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Trust is a precious commodity. It is virtually impossible for any human being to build
trusting relationships with so many people at once. So, lets pose a more modest question:
What, I wonder, would be the value of public administrators who can build relationships
of mutual understanding and trust merely with people who are peers in their own
ministries?
Public administrators all over the world hold on, with amazing rigidity, to turf,
stovepipes or silos. In my 25 years of experience in the U.S. government, including a
stint on vice-president Al Gores task force to reinvent government, I often saw the
harmful effects on American governance of this problem. Even after September 11,
Governor Tom Ridge, who was appointed by President Bush to coordinate homeland
security for the United States, cannot gain the cooperation of people in the two dozen
Federal agencies whose mission is connected to homeland security. There are many
reasons for the insidious durability of silos, one of which I will touch upon later in this
paper, when I explore the unexamined assumptions of Max Webers theory of
bureaucracy. But, in the simplest sense, what a metaphor like silo signifies in CEE and
NIS governments is that -- even in the same ministry, even in the same department of the
same ministry, even on the same floor of the same department of the same ministry -public administrators do not see a need to build relationships with each other. If they do
not see a need to cooperate with each other in the same ministry, if they do not see a need
to build relationships of trust with the people they work with on a daily basis, why on
earth would they see any need to cooperate with people in other ministries? Or with
political superiors? Or with EU officials? Or with media? Or with citizens? Or with
anyone?
I suspect that these questions are so rarely asked in schools of public administration
because of the tendency toward isolation and silos in academic departments
themselves. Few professors see any need to cooperate with colleagues. But, even with
their devotion to individualism, professors usually respect the intellectual merit of the
major disciplines of the field of public administration. The discipline of economics, for
example, is highly valued for its intellectual rigor. So, if you have not yet fully
understood the implications of my original question, let me now rephrase it, but this time
strictly in economic terms: What would be the value for governance of public
administrators who see the need for building stocks of social capital in administrative
space? Mutual respect is a prerequisite for building understanding and trust in the space
between people. In the public sphere, administrative space is merely the name that
political scientists give to the space between people -- the space that economists have
shown can be filled with social capital.
2.0. Social Capital
What, exactly is social capital? For CEE states, especially those about to enter the EU,
building social capital may be even more valuable that investing merely in physical,
financial and human capital. Physical capital comprises the machinery, tools and
technology of production. Financial capital refers to money. The people who produce
goods and services are human capital. Social capital refers to the bonds of mutual respect
and care among members of a collective. Social capital allows for reducing the
transaction costs of economic exchange (Wiegel, 1997).
Human capital is invested in people. Social capital is invested in relationships among
people. When public administrators invest in social capital, government earns a big return
on investment. Public administrators earns currency in the form of increased trust in
governance:
7. To synthesize new concepts by taking old concepts and combining them in new ways.
8. To develop ideas that are novel.
Are emotions intelligent? Evidence from evolutionary biology and nueroscience is
overwhelming that emotions are, in fact, highly intelligent, and that they have primacy
over IQ for building group intelligence and social capital:
In meetings and other group settings where people come together to collaborate,
there is a strong sense of group IQ, the sum total of intellectual knowledge and
skills in the room. However it turns out that the single most important element in
group intelligence is not the average, or highest, IQ, but emotional intelligence. A
single participant who is low in emotional intelligence can lower the collective IQ
of the entire group. Chris Argyris, from Harvard, asks. How can a group where
everyone has an individual IQ of 130 together and collectively end up with an IQ of
60? (Cooper and Sawaf, 1997, p. xxxiv)
IQ alone cannot build group intelligence. IQ has no heartbeat. Emotional intelligence, on
the other hand, focuses like a laser beam what is important to us. Without the signals
communicated by emotions, life would be drab, colorless and meaningless. I would care
no more what happens to me or to you than does a machine. I would be interested in
nothing. Without emotions we could not attach meaning to the word interest in the term
public interest. Organized society could not function without emotional intelligence.
Without emotions we could not attach meaning to the word organized in the term
organized society. Emotions can certainly be harmful to governance, especially the
emotions of hatred, greed, vengeance and lust. There has never been any doubt that,
under certain circumstances, emotion can disrupt reason, says Antonio Damasio,
professor of neurology at the Medical School of the University of Iowa. yet research
shows that reduction in emotion may constitute an equally important source of irrational
behavior (ibid., p. xxxiii).
Without the intelligent guidance of emotions, human beings cannot respond to situations
very flexibly, take advantage of the right time and right place, make sense of ambiguous
or contradictory messages, recognize the importance of different elements of a situation,
find similarities between situations despite differences that may separate them, draw
distinctions between situations despite similarities that may link them, synthesize new
concepts by taking old concepts and combining in new ways, or develop ideas that are
novel. Without the guidance of emotions we cannot be intelligent. Without the guidance
of emotions we cannot be rational.
Emotional intelligence is registered through deep listening -- listening to oneself and
listening to others (Kramer 1995, 1999). People who are high in emotional intelligence
know how to listen to their emotions and regulate their intensity so they are not hijacked
by them. Emotionally intelligent people know how to keep disruptive emotions in check.
Emotionally intelligent people sense the effect their emotions have on others.
Emotionally intelligent people can laugh at themselves. Emotionally intelligence people
know how to deploy their strengths and compensate for their weaknesses. Emotionally
intelligence people listen to other peoples emotions and can empathize with them.
Emotionally intelligent people act ethically and build trust through integrity and
reliability. Emotionally intelligent people admit their own mistakes and learn from them.
Emotionally intelligent people are comfortable with new ideas and new information.
Emotionally intelligent people are skilled at listening to a groups emotional currents and
discerning the power relationships. Emotionally intelligent people can negotiate and
resolve disagreements. Emotionally intelligent people listen to other people and know
how to communicate effectively (Goleman 1997).
Emotionally intelligent behavior is a prerequisite for building bridges of mutual
understanding and trust in the space between people -- in administrative space. To
promote effective and efficient governance, large stocks of social capital are needed to
fill the gaps of mistrust in every ministry, in every department, in every office, and in
every nook and cranny in administrative space.
4.0. Leading by Listening
To build stocks of social capital, one of the most important skills a public administrator
needs is the ability to listen -- to self and others. The Chinese characters that make up the
verb to listen tell us something significant about this skill. Chinese characters are really
picturegrams. When in stillness, reads this picturegram, a king listens with the heart.
The ear is worth ten eyes. In order to be a good king,
one must listen with ears, eyes, and heart, giving
undivided attention to the people. In the philosophy of
Taoism, a king is defined as a servant-leader who is a
mindful listener. In a sense, the Chinese pictogram
suggests an ancient wisdom: leadership is a
metaphor for being integrated, focused, and centered,
a metaphor for emotional and intellectual balance in
all aspects of life. Leadership is connecting mindfully
and feelingly to what moves in ones soul -- and makes one come alive -- and to what
moves in the souls of others and makes them come alive. Public service leadership is
soulwork.
Traditionally, leadership has been seen as a mysterious, lofty quality granted only to a
few privileged people, and if one is not born with that quality, one cannot acquire it. Not
so. Leadership is a composite of listening and speaking skills that can be learned,
developed, and exercised by anyone in working with others to carry out a task. An
outstanding public servant, according to the Chinese pictogram, is a leader who:
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Listens to the whole message -- not only the words, but the music: the tone of
voice, the facial expressions, the gestures, the emotions and the silences between
the words.
Allows the speaker to feel fully valued and deeply respected.
Is able to sustain concentration, focus intently and recall the speakers message -the words, emotions and the music -- many days later.
As the last point suggests, leading is about speaking persuasively just as much as it is
about listening deeply. By tapping emotional energies, leaders move themselves and
others to committed action. Leaders know how to draw out enthusiasm in others not
merely compliance. Authenticity -- listening to oneself -- is the most important
prerequisite for public service.
Public service leaders know their deepest convictions, are true to them, and act with
empathic understanding and positive regard for others differences, without demanding
that everyone else feel, think or act the same way that they do (Kramer, 1995). Public
service leaders listen deeply as a way to find common ground for action and results.
Public service leaders hold their ground and stay connected. Public service leaders are
ethical. Public service leaders who have the capacity to listen deeply to themselves and
others know five things. They:
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Know, deep down, what their values are and what other peoples values are;
Know how to communicate what they need in order to get cooperation from peers,
political superiors and others;
Know how to build coalitions to support the needs of peers, political superiors and
others;
Know how to say no to illegal or unethical acts of government;
Know how to build social capital.
must not confuse leadership with the top-ranking person in a hierarchy. Many a No. 1
in politics or public administration could not lead a squad of ducks across the street.
Likewise, we should not confuse leadership with power. Military dictators like Saddam
Hussein wield power. The al-Quaida terrorist who lays a knife on the neck of an airline
pilot has power. Leadership is more than power. Leadership is also more than legitimate
authority. The police officer who issues you a speeding ticket has legitimate authority, as
does the Motor Vehicles Bureau clerk who tests your vision before granting you a license
to drive. Corporations and government agencies everywhere have executives who
imagine that their place on the organization chart has given them a body of followers,
writes John Gardner (1990), a former U.S. cabinet secretary. And of course it has not.
They have been given subordinates. Whether the subordinates become followers depends
on whether the executives act like leaders (p. 3).
7. 0. Followers Can Be Leaders and Leaders Can Be Followers
The only definition of a leader, according to Peter Drucker (1999), is someone who
has followers (p. xii). In other words, without willing, active, and committed followers,
there are no leaders. Since leadership is a relationship of deep listening, any person in the
administrative space of governance can take the lead and any person can follow the
lead. These roles are not fixed. They can alternate. We shift frequently in ordinary
group relationships from one role to the other without even thinking about it. In my
Sunday morning prayer circle I can be a leader. In my Sunday night bowling club I can
be a follower. A new view of followers, first articulated by Joseph Rost (1991, p. 109),
is now emerging in the context of governance relationships:
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Only active people are followers. Only people who engage with others in the
leadership relationship should be called followers. Passive people have chosen not
to participate in a relationship. Passive people are not followers. Passive people
are non-players. Passive people have chosen to withdraw their social capital from
public life and invest it in their private life.
Followers can be transformed into leaders and leaders into followers. Sometimes
we choose to lead and other times we choose to follow. People are not stuck in the
same role all the time. In one meeting on Monday morning I can be a leader, and
in another meeting on Monday afternoon I can be a follower. Few people have
interest in leading 24 hours a day, 7 days a week. In public life, some people
choose to be followers much of the time and some people choose never to
participate in any leadership relationships.
Followers are not doing followership, they are doing leadership. Both leaders and
followers co-create one relationship that is leadership. If a leaders influence is
based more on persuasion than on authority, position or status, then followers
actively and deliberately choose when, where, why and how they allow
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listening which means they know how to touch the souls of people, their own souls and
those of others. They know how to listen to their own heartbeat and to the heartbeat of
others.
Few public administrators in CEE states possess the leadership skills necessary to serve
in senior civil service positions. In almost all CEE states, mid-level communist
bureaucrats have been retained because there are no readily available alternatives. Many
of the best public administrators have left government for the private sector. Under
communism, civil servants listened to the Party but not to the broader population of
stakeholders they were supposed to serve. As a result, since 1989, citizens of CEE states
have become increasingly disillusioned with the rhetoric of democracy and free
markets. Both elected and career officials often appear to be deaf to the everyday
concerns of ordinary citizens. This is a failure in leadership and a failure in listening. As
a result, many CEE states are creating a massive deficit in social capital.
This has untold economic consequences. A deficit in social capital means that the
allocation of financial capital will be inefficient, wasteful and unproductive. A recent
survey of more than 3,000 CEE companies by the World Bank and the European Bank
for Reconstruction and Development (EBRD) reveals that bribery and corruption are
widespread in the region. A small group of firms exercises influence over state policies
that affect the activities of many firms across the economy, according to the EBRD
survey (The Wall Street Journal Europe, November 9, 1999, p. 2). In many CEE and
NIS states, trust in government has plummeted to pre-1989 levels (Rose, 1996). As
former U.S. vice-president Al Gore observed in Washington, DC, at the January 1999
International Conference on Reinventing Government, Ensuring the integrity and
efficiency of government will strengthen democracy and help it accelerate, instead of
suffocate, the entrepreneurial initiative of its private sector (U.S. Department of State
web site). Investing in social capital is good business -- it is an investment in good
governance and, even more, a prerequisite for efficient allocation of financial capital.
If social unrest in CEE states is to be forestalled, participation in policy-making,
especially as it relates to meeting the requirements of EU accession, needs to be
expanded to the widest possible spectrum of public administrators, citizens, business
firms, professional associations, NGOs and interest groups.
In the long run, ensuring widespread collaboration by all stakeholders in the EU
accession process will allow for big savings in the regulatory apparatus of government,
given that successful implementation of the acquis laws and regulations across Central
and Eastern Europe relies heavily on voluntary compliance by citizens and businesses.
Even in the short run, coercion is neither practical nor effective.
Promoting democratic governance in CEE states demands developing a cadre of public
administrators who can lead by listening to stakeholders. This involves what can only
be described as 360 degree leadership -- public administrators with high enough levels
of emotional intelligence to:
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Lead up -- build social capital with political superiors and elected officials;
Lead down -- build social capital with lower-level staff;
Lead across -- build social capital with peers;
Lead out -- build social capital with stakeholders outside their ministry -MPs, interest groups, NGOs, EU officials, academics, media, citizens etc.
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administration, and promote equal justice under law emotions must be eradicated. For
reason to rule, public administrators are to become souls on ice.
10.0. Souls on Ice
In the classic formulation of Max Weber (1922), public administrators must be without
affection or enthusiasm ohne Zorn und Eingenommenheit:
Bureaucratic administration means fundamentally the exercise of control on the
basis of knowledge. This is the feature of it which makes it specifically rational
The dominance of a spirit of formalistic impersonality, Sine ira et studio, without
hatred or passion, and hence without affection or enthusiasm .. This is the spirit in
which an official conducts his office ... Otherwise the door would be open to
arbitrariness. (pp. 15-16).
Webers lifelong project was to conquer the world of administration for rationality
(Diggins, 1996). Excellent administration is control on the basis of knowledge.
Administration, therefore, is about control. Excellent administration is about limiting
discretion. Excellent administration is about preventing arbitrariness and tyranny. For this
reason, public officials do not establish relationships to persons. Governance is
impersonal. Relationships are positively harmful for excellent administration. Once the
boxes on the organizational chart are drawn, once the responsibilities of positions are
delineated, once the irrationality of human emotion is eliminated, the organization will be
a smooth running, lean and efficient machine, easily able to follow orders and implement
public policy. Public organizations must be cool arenas for dispassionate reason, clearheaded analysis. Administration without people is the most efficient and effective
governance. Administration without people, by definition, is excellent administration.
Unless public administrators eradicate emotions that interfere with decision-making:
1.
2.
3.
4.
5.
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imparted to them from above, they each make an added contribution to the total
effort, influenced by what they see, feel and are doing (cited in Gawthorp, 2002, p.
85).
So why does it remain so hard for high-level civil servants to see that that they must
blend, on a day-to-day basis, the essential skills of an efficient administrator with the
equally vital skills of a leader? I cant be certain, but I suspect that it is a problem of
unexamined assumptions. It is extremely painful and anxiety-provoking to examine
deeply ingrained tried-and-true assumptions. But isnt examining assumptions the very
definition of learning? The unexamined life, as Aristotle said somewhere, is not worth
living.
11.0. Excellent Management is Not Leadership
Let me now turn to a related problem. We have just learned how extraordinarily difficult
it is to see the difference between administration and leadership. The question I want
now to explore is what, exactly, is the difference between management and leadership?
While related, management and leadership are not the same -- even in the private sector -and must be sharply distinguished. I believe that excellent managerial skills are necessary
but not sufficient for CEE public administrators. For good governance, leadership skills
are also required. Only leading by listening, in my experience, can increase social
capital. We know that excellent administration alone is not capable of increasing social
capital. I want now to show that excellent management also is not capable of increasing
social capital. But why? Why is management a misleading path if we are concerned about
developing the governance skills of public administrators?
Is excellent management necessary for public administration? absolutely yes. Is
excellent management sufficient for building social capital? absolutely not.
The word manage derives from the Italian word, manegiare -- which means the
handling of horses. In American sign language, the sign for manage is to hold the
reins of a horse. Like administration, management is essentially about control.
Management is about restraining energies. Management is about limiting discretion. In
public administration, control and restraint -- especially in the expenditure of taxes
collected from citizens and businesses -- is a prerequisite to demonstrate accountability to
elected officials, Parliaments and citizens. In a democracy, law-based public
administration is essential. Therefore, control of financial resources is absolutely
necessary for public managers. All public administrators must also be good managers.
All public servants -- whether they are elected politicians, appointed political executives
or career civil servants -- must take an oath to protect monies in the public treasury from
being spent illegally, imprudently or unethically. The behavior of all public managers -elected, appointed or otherwise -- must be monitored and controlled. It is impossible to
argue this truth away even by the strenuous advocates of the entrepreneurial philosophy
of New Public Management.
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Leadership, however, is not about control. For decades, many scholars have assumed that
leadership is excellent management (Rost, 1991). This is wrong. Leadership is not about
restraining energies. Just the opposite. Leaders move themselves and others to
committed action. The word lead derives from Old English, leden, which means to go
before as a guide; to take a journey. The word motivate derives from the Latin,
motere, which means to move. The word emotion also derives from motere, to move.
By drawing on emotional energies, leaders take us on a journey. Leadership = emotion.
Leaders begin initiatives. Leaders challenge the process. Leaders inspire a shared vision.
Leaders enable others to act. Leaders model the way. Leaders encourage the heart
(Kouzes and Posner, 1997). Leadership is not about control. Leadership is about
releasing human energies. Leaders lead by tapping their emotional intelligence and the
emotional intelligence of others (Goleman, Boyatzis, and McKee, 2002). Leadership is
about influencing stakeholders in society to work together to achieve higher, more ethical
goals.
According the Pulitzer-prize winning political scientist James McGregor Burns, who
founded the field of leadership studies, the leaders fundamental act is to lead people to
be aware or conscious of what they feel to be their true needs so strongly, to define their
values so meaningfully, that they can move to purposeful action (1978, p. 44). In other
words, leaders listen so deeply to the emotional messages of their constituents that,
sometimes, they have the capacity to register needs not even fully conscious to their
constituents.
Leadership is the major contributor to social capital. Leadership, says Burns, raises the
level of human conduct and ethical aspiration of both leader and led, and thus has a
transforming effect on both (p. 20). Building social capital, therefore, depends on
leaders not managers.
To be an excellent manager or administrator, one does not need to tap the emotional
energies and creative will of subordinates, citizens, business firms, interest groups and
other stakeholders in society. Moving others to committed action is not a necessary skill
for managers. Building social capital is not in the position description of any manager.
Listening to others is not what they do best. Highly motivated or inspired behavior may
even be counter-productive. According to Harvard professor John Kotter (cited in Behn,
1998, p. 212):
For some of the same reasons that control is so central to management, highly
motivated or inspired behavior is almost irrelevant. Managerial processes must be
as close as possible to fail-safe and risk-free. That means they cannot be dependent
on the unusual or hard to obtain. The whole purpose of systems and structures is to
help normal people who behave in normal ways complete routine jobs successfully,
day after day.
Completing routine jobs successfully delivering social security payments on time;
implementing computer systems for E-government, filling potholes; keeping nuclear
power plants safe -- is a worthy task. Excellent management is the exercise of control.
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The focus is to strengthen or correct what already exists in the organization. Excellent
managers look for exceptions and fix them. Building social capital, or raising people to
higher ethical standards of behavior, plays no role in excellent management. Managing
budgets means controlling public monies to prevent financial waste. Managing
information technology means controlling what kinds of information computers
release. Managing nuclear power plants means controlling accidents. People,
however, cannot be managed. They can only be led.
12.0. A Cure for Occupational Psychosis
While we still appreciate Webers genius as the premier sociologist of his generation, his
model of man as a machine has had unintentionally perverse effects on modern, postindustrial public administration and in navigating the permanent white water of change.
Man as machine continues to serve as a major barrier to building trust in 21st century
government. The fall of communism, if nothing else, demonstrates that rigid, inhumane
Kafkaesque bureaucracy is not superior to other forms of organization. Moreover, it is
not even true that impersonality is the best guide to rational decision-making. Charles
Darwin showed as early as the 19th century that emotions were adaptive in the evolution
of human beings, but there is no evidence in Webers writings that he understood the
implications of Darwins revolution in biological science (Weber 1978). Many emotions
are products of evolutionary wisdom, which probably has more intelligence that all
human minds together, according to Joseph Ledoux (1996, p. 36), professor of science
in the Center for Neural Science at New York University. Neuroscientific discoveries in
the last decade show that rationality and emotions are not separate compartments in the
brain. Rather they are inextricably woven into all cognition.
Recent work in psychology by scholars such as Martin Seligman, Richard Lazarus,
Anthony Ortony, and Keith Oatley, and research in neuroscience by Joseph Ledoux and
Anthony Damasio show conclusively that emotions are a form of intelligent awareness.
Emotions are intelligent. Emotions are what make us human. Emotions tell us what is
valuable and important to us and to others. They signal the meaning of events. Emotions
are just as cognitive as other perceptions. They serve as essential guides for humans to
make rational choices. Emotions are a form of thinking as well as a form of feeling. All
thinking is infused with the intelligence of emotions. Without the guidance of emotions,
one becomes irrational, detached from reality. Is not this detachment from reality the
very definition of occupational psychosis (John Dewey), professional
deformation(Thorsein Veblen), trained incapacity (Philip Selznick), and
bureaupathology (Robert Merton)?
We now have conclusive biological evidence that decision-making is neurologically
impossible without being informed by emotions. Contrary to the classical model,
decision-making is arbitrary when it is not infused with the intelligence of emotions.
Empirical research by organizational scholars on three continents shows that emotional
intelligence is the very marker that distinguishes routine management from outstanding
leadership and the marker that distinguishes dead organizations from living organizations
(Ashkanansy, Hartel, Zerbe, 2000).
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Make us inefficient
Sign of weakness
Interfere with good judgement
Distract us
Obstruct, or slow down, reasoning
Arbitrary and tyrannical
Weaken neutrality
Inhibit the flow of objective data
Complicate planning
Undermine management
Make us effective
Sign of strength
Essential to good judgement
Motivate us
Enhance, or speed up, reasoning
Build trust and connection
Activate ethical values
Provide vital information and feedback
Spark creativity and innovation
Enhance leadership
For public administrators, management and leadership skills are not mutually exclusive
(Kovriga, 1998). We should not make the mistake of stigmatizing management and
glorifying leadership. They are complementary. Managers lead and leaders manage;
however, the two functions reflect different -- at times overlapping -- sets of skills. Both
are essential. Public administrators need to expand their repertoire of skills to include
both functions, without minimizing one at the expense of the other. What is needed are
both managers and leaders (ideally, both in the same body), according to a recent panel
of the U.S. National Academy of Public Administration (1997) with the need for leaders
growing immensely as predictability and order give way to change and ambiguity(p. 5).
A genuinely democratic and ethical civil society in CEE and NIS states demands the
development of a cadre of public administrators skilled in leadership not just
administration and management. Civil servants at times administer laws, at times manage
budgets, and at other times lead people and change. Civil servants are not just
administrators and they are not just managers. They are also leaders who have a
responsibility to share democratic values, represent a broad range of social groups, and
view themselves as accountable to much broader constituencies than before.
We need a government, writes Peter Drucker, the father of modern management,
which knows how to govern and does so. Not a government which administers, but a
government which truly governs (cited in Potucek, 1999, p. 28). All governance is
people governance. All public service is people service. Its all people.
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