Bart Johnson Doctoral Researcher IKON, Warwick Business School
University of Warwick Coventry, CV4 7AL, UK Tel: +44 (0)2476572687 [email protected]
A
BSTRACT
This paper aims to find out the extent to which managerial work is similar and different in the public and private sectors. Using a set of structured categories set out by Mintzberg (1973), this paper investigates the managerial work activities of four Canadian Healthcare CEOs, comparing the results to Tengblad’s (2006) study of private sector managers. Through an analysis of work type, hours, location, activities, and contact patterns this research finds that there are surprisingly few differences between the two studies, despite contextual and situational differences. Possible explanations for both similarities and differences are explored, implications of these findings are discussed, and future directions for research are proposed.
Keywords: Managerial Work; Public Sector Management; Healthcare Management; New Public Management; CEOs
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NTRODUCTION
In public administration literature it has long been held that the work of public and private sector managers was fundamentally different (Allison 1979; Sayre, 1953). Distinctions between the public and private sector have even been referred to as one of the ‘grand dichotomies’ of western thought (Weintraub, 1997). However, the once ‘clear-cut’ differences that originated in economic and liberal theory have been called into question and criticized as being an over simplification of reality (Rainey 1997). This has become increasingly prominent with the emergence and promotion of ‘New Public Management’ (NPM) (Hood, 1991) as many public organizations have adopted and emulated private sector practices such as performance related pay and total quality management. Two contrasting views have subsequently emerged in public administration literature. On the one hand, there are a number of scholars who contend that the work of managers in the public and private sectors has ‘converged’ and thus, lessons from the private sector can be drawn and effectively applied in the public sector (Pollitt, 2001; Poole et al., 2006). Contrarily there are many others who maintain that managerial work in the public and private sectors has always been, and continues to be ‘distinct’, and it is therefore pointless and even counterproductive to seek out and implement practices and policies based in the private sector (Boyne et al., 1999; Nutt, 2006).
However, despite little empirical evidence supporting either side, and potentially significant political and societal implications associated with fundamentally changing the way business is conducted in the public sector, public
et al., 2005; Andersson and Tengblad, 2009). In response researchers have recently begun to re-investigate the public-private dichotomy (Andersen, 2010; Boyne,
2002). Though, of the studies being conducted, unfortunately few focus on understanding the actual ‘real’ work behaviors and practices of public sector managers (Dargie, 1998a; Van Watt, 2003), with the majority of studies aimed at determining perceived differences in the work attitudes, motivations, and goals of public and private managers (Metcalfe, 1989; Rainey et al., 1995). Thus, little evidence is emerging as to whether or not there is a ‘real’ or perceived gap in managerial work, and leaving questions as to whether NPM initiatives are a good fit for public sector organizations or merely costly and disruptive.
A dearth of empirical research on differences in work practices is not a new phenomenon, with Buchanan (1975, p. 423) noting that while many claims have been made regarding differences between public and private sectors ‘few have undertaken to establish an empirical basis for such claims.’ This is particularly the case with managerial work research where a number of studies have been conducted on the work behaviors of private sector managers (see Matthaei, 2010), while few scholars have examined work in the public sphere. As a result, it remains largely unknown what public sector managers do in practice, yet alone what differences may or may not exist between public and private sector management. Further complicating matters has been conflicting descriptions of managerial work in the few studies that have been conducted (See Dargie, 1998a and Lau et al., 1980 for a contrast).
Endeavoring to counterbalance conflicting descriptions of managerial work, this paper contributes to the ongoing debate of ‘distinctiveness’ in public administration by focusing on the work activities of managers in the public and private sectors. Investigating the question: ‘what do public sector manager’s do’, this paper aims to determine the extent to which managing is similar and different in the public and private sectors. To this end a set of structured categories set out by Henry Mintzberg (1973) are used to systematically compare the work activities of Canadian healthcare managers to a recent study of private sector managers in Sweden (Tengblad, 2006).
This article proceeds as follows. Succeeding a brief overview of research on the public-private distinction as it relates to managerial work, this paper goes on to discuss the research setting, sample, and methodology. Thereafter, the empirical results of this study are presented alongside those of Mintzberg (1973) and Tengblad (2006). This paper then discusses, analyzes, and interprets the results and concludes with a discussion of the implications of the findings.
BACKGROUND: MANAGERIAL WORK IN THE PRIVATE AND PUBLIC