Multi-level Governance and Public Private Partnership: Theoretical Basis of Public Management

Abstract

This article discusses whether a paradigm of organizational management and public management has been sifted or not, i.e. the continuity of discontinuity of a paradigm. Just like the reflection of modernity, a paradigm shift is not brought about by an instantaneous leap and severance with traditional framework, but rather by a gradual long term scientific revolution. The transformation of organizational management has also proceeded not as a fully changed model having leaped instantaneously, but as a model repeatedly and incrementally modified by the reflection of public policy processes. One of such models is NPM approach underlying the concept of TQM approach brought about by the paradigm shift during the 1990s. In this context, we will consider PPP schemes, underlying both NPM approach and TQM approach, as a typical example of multi-dimensional ways of governing. PPP schemes is based on the co-governance as a multi-level governance by the collaboration, cooperation and mutual interpenetration of the trilogy of the three sectors; the public sector, the private business sector, and the civic nonprofit sector. The trilogy model of the three sectors, each of which must be an equal subject and actor of governance in principle, will lead to the setting which would make PPP schemes work more usefully and effectively, expand quality public services, and seize the opportunity to meet needs of citizens as customers and stakeholders. In this article, we will scrutinize in turn; (1) a historical overview of the idea of public management in the prewar period, especially the scientific management and the human relations; (2) outstanding management theories in the postwar period, that is, Simon’s theory of decision-making in the administrative organization, and management theories of TQM, the representative of which is Deming; (3) the idea of reinventing government to supplement the dysfunction of bureaucracy; and (4) the trilogy of PPP schemes underlying NPM and TQM as an example of multi-level governance.