Public planning and political strategy

Planning theory and practice derived from corporate experience, management science and rational decision theory have had little influence on decision-making in the public sector. The political environment and organizational complexity of public decision making render conventional approaches to objective, rational, comprehensive planning of limited value in government agencies and in private corporations involved in public policy making. A more effective approach to strategic planning and management must be based on an understanding of the political dynamics through which policies are made. It must adopt a variety of styles directly related to major functions in the policy making process and use a variety of political intervention and influence techniques that facilitate the implementation of plans and policies.     

Strategic Planning in the Malawi Public Sector: Potential Tool for Progress or Regression?

The process of developing strategic plans in the public sector is regarded as one indicator of positive reform in the system. The assumption is that strategic planning ensures that (just like in the private sector) public sector organizations’ operations should cost less but deliver better service. Ultimately the argument is that public sector institutional governance and responsiveness to the citizenry is not only seen but felt. However, strategic planning has to be done in an appropriate manner for it to deliver. For instance an analysis of the underlying motives, the role of leadership in the process as well as the relevance or viability of the guiding strategic planning model significantly affect the nature of expected results. In the early 2000s, the Malawi public sector embarked on a serious drive towards strategic planning process as part of its reform package. In order to ascertain it’s potential to transform the Malawi public service, this paper focuses at critically analyzing the strategic planning process in the Malawi public sector by among other things asking: who initiated and led the process? What approach determined the process? What is the possible potentiality of the adopted strategic planning approach in enhancing the reform agenda in Malawi? Based on interviews with senior officers in key Malawi public sector institutions, the paper concludes that the strategic planning process is ‘transitional and fluid’ hence lacks the clout to effectively enhance reforms in this sector. Another finding is that lack of effective leadership has largely contributed to the status quo.     

Formal strategy in public hospitals

This paper suggests that the difficulties associated with the application of formal strategic planning in public professional service organizations may have been underestimated in much of the literature. A survey of written strategic plans produced by Canadian hospitals showed that these plans were often heavily oriented towards expansion, ambiguous and rather loosely integrated, leading to questions concerning their realism and utility as a basis for strategic decisions. This phenomenon seems symptomatic of the complex (and often highly political) decision making environment faced by hospital administrators (and by managers of other professional service organizations such as universities and social service agencies). It is concluded that the benefits of formal planning may be different and less tangible for these organizations than for private business.     

Strategic planning for the armed forces

The author points out that in most countries the defence department is a very large ‘business’. He claims that, although long-range planning in the Canadian Department of National Defence may not be perfect, it does follow the stages of traditional strategic planning. He describes these stages, pointing out some innovations which he feels could be of value to other government departments in other countries as well as to large corporations in the private sector. He emphasizes the importance of feedback and describes ‘capability components’ which have been developed in the Canadian defence department to replace the traditional thinking in terms of ‘Army, Navy, Air Force’. Each capability component focuses on the required output/result and has a sponsor who is responsible for developing plans for the long-term ‘state of health’ of his capability component. Overall, the author makes a strong case for forward-looking and results-oriented strategic planning.     

Strategic planning in large firms—some guidelines

Some argue that a foundation for planning has been achieved when a firm can state its strategic plan in terms of products and markets. (This is referred to as the ‘business form’ in this article). If this statement is true, what factors will aid a firm in achieving the business form in its strategic plans? In this article, details of strategic planning in over 50 large firms taken from an empirical research sample are examined to illustrate which factors seem to lead to the business form of strategic plan in these firms.     

Strategies for planning

In recent years there has been a good deal of discussion amongst planning specialists and academics about the gap which exists between the theory of planning as set out in journals and textbooks, and the practice of planning in private and public organizations. Planners are continually complaining about the resistance to planning by top management and operating managers in divisions and departments.In this article the author aims to produce a reconciliation between theory and practice and to discuss what alternative strategies are open to planners in devising planning systems for their organizations.He suggests that the problem has its origin in the fact that corporate planning theory was first developed by management scientists as a total systems approach. Corporate planners have failed to sell an integrated planning system either as programme budgeting or as corporate planning. Research suggests that a management team can only adopt and implement a comprehensive planning system in very special circumstances, e.g. when the organization's survival is threatened, a new management team has been appointed and the staff of the organization are ready to accept radical change.In normal circumstances the planner is wrong to advocate a ‘root and branch’ solution. He must diagnose the planning needs of the organization and his objective must be not merely to establish a particular planning procedure but rather to discover how he can best improve the quality of management decisions.Recent studies on strategy formation indicate that the introduction of a formal planning procedure is only a partial answer to the problem of improving the quality of management decisions.The paper reviews various approaches to planning and considers how they relate to organizations with different strategic problems, with differing organization structures and various management styles.     

Italian Urban Plans: Diversified Approaches and Methods for Assessing Their Quality

This article poses the difficult task of providing a brief overview of Italian urban planning, difficult to understand for foreign observers because each Region has different legislation and urban planning tools. The paper describes an original methodology that evaluates the quality of the approach differentiated as (1) ‘of the plan’ (reformist, participative, from the territory); (2) ‘in the plan’ (integrated strategic, sustainable); (3) ‘with the plan’ (conformative, methodological, recompositional, systemic-infrastructural); and (4) ‘beyond the plan’ (beyond governance methodologies). The paper also compares aspects of quality present in plans for large, medium and small Italian cities. The conclusions review factors of excellence that may be used in other international scenarios.     

Foresight activities in the U.S.A.: Time for a re-assessment?

This article reports on a brief, informal, reconnaissance study of ‘foresight’ activities now being conducted in the private sector and the Federal government. Such activities include: external environmental assessment, internal organizational assessment, direction setting, definition, and selection of base and contingent plans, implementation, performance evaluation and feedback. The study involved the reading and analysis of the existing literature and discussions with over 50 people in diverse private and public sector organizations. The objective was to determine what foresight activities are being done, how, by whom, with what results, and what are the implications and options.     

An Examination of IT Planning in a Large,Diversified Public Organization*

The conduct of information technology (IT) planning processes has been of dominant managerial concern in public and private organizations. Yet, current IT planning research offers little guidance on the types of planning actions and behaviors that are appropriate to organizational contexts. We focus on the conduct of the IT planning process by describing an exploratory research project. The project empirically examined a number of issues associated with managing IT planning within a single large public enterprise, particularly identifying actions and behaviors related to producing quality IT plans. The results of the study yield some useful set of guidelines; most interesting is the importance of building IT infrastructure based on IT sophistication and innovativeness for large agencies to improve plan quality. Other recommendations include having a focused, balanced technology and business planning orientation that incorporates a strategic outlook, support of top management, attention to business planning, and early consensus among planning members.     

Patterns of Strategic Change in Health Care: District Health Authorities Respond to AIDS*

The literature on strategic change is based mostly on research in the private sector. This paper suggests that change in public sector organizations is equally worthy of study and can offer novel insights. Findings from research into the development of services for HIV/AIDS in NHS health districts are used to illustrate six generic themes in strategic change processes. The first theme concerns the role of context in potentiating change, and in promoting a diverse response in different localities despite unifying government guidelines. A second theme introduces the initiators of change, the ‘product champions’, a less homogeneous group than is sometimes suggested. Although personal status, energy and pro-activity were shared characteristics, individuals differed in style and methods used to attain goals. Theme three highlights social movements as mediators of change. Consumerism has affected both private and public sector industry, but for HIV/AIDS the process has been particularly visible. The mobilising role of crisis comes next. A three phase model is suggested, linking ‘crisis-as-threat’ and ‘crisis-as-opportunity’ theories. A fifth theme concerns changes in organizational culture provoked by HIV/AIDS, and the role played by symbolism - often unpredictable and not easily manipulated by management. The last theme is organizational learning; how learning about HIV/AIDS diffused through the districts, and how well learning generalizes to other issues. In conclusion, it is argued that the study of processes of change in a public sector organization can contribute to general models of strategic change and help to develop organizational theory.     

Bureaucracy,decision-making and leadership in private and public organisations

Starting from the current political discussion of privatization, a comparison is made between private and public organizations, focusing on the degree of bureaucracy and the processes of decision-making and leadership in the organizations. The comparison is based on empirical data published in the literature of organizational research, including some fresh material from a recent comparative study of strategic decision-making in British and Swedish organizations. On the basis of these empirical data, it is concluded that many of the arguments put forward in the discussion of privatization do not seem to be grounded in facts, and that the results of organizational research do not confirm the great differences that are said to exist between private and public organizations.     

Business planning in successful small firms

Strategic planning has been widely publicized during the last decade, but what has been accomplished by this management activity in smaller, high-growth firms? Business plans have been widely recommended for start-up funding, but we have noted additional uses for business plans in pratice. This article reports methods and results of strategic planning and written business plans in high-growth ‘INC. 500’ firms. In spite of a variety of obstacles, over half of the firms conduct strategic planning on a regular basis. Results of this study show that fast-growth firms develop written business plans as a product of strategic planning, mainly by five key management personnel. Written business plans are used more for internal management purposes than for start-up funding. Finally, the completion of strategic planning is positively associated with a firm's profitability. Based on survey and interview data, this article describes a four-phase model to help ensure effective integration of strategic planning processes and the resulting written business plans.     

Private and Public Sector Models for Strategies in Universities*

Increasing formalization of disciplined management of UK universities over the last 30 years has been accompanied by moves to articulate universities' strategies, by attempts to connect organizations' plans and management of activity to those strategies and by a desire to measure how well outcomes are fitted to universities' goals. In this complex change in the orientation of universities' management, lessons have been drawn from the contemporary development of the analysis of strategy and strategic process in commercial and, latterly, in public sector settings. It is argued that there have been very significant errors and weaknesses in the importation of such models of strategy, especially in the stress on strategic planning rather than strategic process and in the insensitivity of universities' planning to the underlying strategy process of the typical university. Most universities, it is argued, mistake planning – and even budgeting – for strategy itself, having failed to make proper sense of their own organizations' processes of generating strategies and putting them into practice. They have typically missed the crucial context of strategy and change. It is argued that there are crucial lessons to be learned from recent advances in theorizing about strategy in the private or commercial sector, particularly in relation to the development of modelling complex and path‐dependent systems; and it is argued strongly that universities' strategic process can fruitfully be analysed through the perspectives of real options analysis. This can also accommodate the richness of universities' traditions of strategy formation and implementation within ‘loose‐coupled’ organizations.     

Developing an information systems strategy

The pervasiveness of information technology and the development of information economies has been heralded as an ‘information’ revolution. Few organizations can avoid the implications of this revolution and, with the falling cost of hardware and the increased scope of applications, the number of firms needing a strategy for information systems has increased by an order of magnitude. An awareness of the benefits of planning, the dangers of technology which can trap the unwary, and the general characteristics of the DP development cycle, should all convince management of the need for a strategy for information systems. However, while information systems literature has many references to information systems strategy, definitions are elusive. This article describes a basic planning model for developing an information systems strategy. The model is specifically structured to ensure that the necessary strategic issues have been examined, before information systems management are asked to draw up detailed tactical and operational plans.     

The social construction of strategic coherence: Practices of enabling leadership

The construction of “strategic coherence,” defined as the development of a system of mutually compatible meanings among organization members about desirable organizational directions, is clearly a crucial issue for organizations. Yet, how to achieve it is in part an open question. While previous studies have considered how strategic coherence may emerge across top levels of management through strategic planning activities and negotiations among senior leaders, we know much less about the contribution of other actors and processes behind the scenes (in non-strategy roles). Drawing on an ethnographic study of a public hospital's planning and project management practices, this paper therefore focuses on the bundles of practices, people and tools through which strategic coherence can emerge across different levels and sectors in mundane activities. We build on the concept of “enabling leadership”, grounded in practice theories of leadership, as our analytical lens. The study reveals how strategic coherence is socially constructed by practices of ‘fueling’, ‘shaping’ and ‘entwining’ mutually compatible meanings, in interactions among diverse people and tools. We propose a grounded model of the construction of strategic coherence as the progressive socialization of meanings about organizational direction that is not just administered from the top, nor naturally emergent from the grass-roots, but that is a collective and inherently socio-material accomplishment of enabling leadership.     

The social organization of terminal care in two pediatric hospitals

Some of the characteristics which distinguish social planning from planning in the private sector, or in publicly owned industry, are identified. A survey of OR investigations (both tactical and strategic) in the area of urban planning supports the case that the mainstream OR contribution does violence to the nature of the system under study. In particular, problems are formulated in terms of (or transformed into) single objectives, to be optimized; aspects of the social world are subject to wholesale quantification, with resulting distortion; models make implausible data demands; project definition and execution reinforce the ‘scientisation’ of political debate; problems are formulated on the assumption of a single hierarchically powerful decision-maker; and problems are formulated as if they must be solved in toto at one point in time. It is suggested that we should look to the converse of these qualities for new directions in the application of operational research in urban planning. Some examples are given of techniques and approaches which exhibit these alternative characteristics.     

Developing Absorptive Capacity Theory for Public Service Organizations: Emerging UK Empirical Evidence

A strong public policy focus on high performance means that utilizing management knowledge effectively is at a premium for UK public service organizations. This study empirically examined two English public agencies to explore the inter‐sectoral transfer of a strategic management model originally developed in the private sector – absorptive capacity – which is one way of conceptualizing an organizational competence in such knowledge mobilization. Two theoretical contributions are made. First, a new absorptive capacity framework for public service organizations is developed which recognizes the participation of public agency project teams during an innovation process proceeding over time with phases of co‐creation, testing, metamorphosis and diffusion. Second, our novel framework modifies an early influential model of absorptive capacity. Counter to this model, we argue that realized absorptive capacity requires agency from skilled and embedded actors to turn ‘curbing routines’ into ‘enabling routines’ in all four stages. Project (middle) managers have flexibility in their roles to seize episodic moments of opportunity to innovate and achieve service delivery goals, and to build absorptive capacity capability. Absorptive capacity capability develops organically over time. Future research directions are discussed.     

The benefits of planning with normative and heuristic approaches

The effectiveness of planning groups that used normative planning approaches and heuristics were investigated. The quality and innovation in plans developed using each planning approach were compared. Two studies were carried out in three organizations. In the first study, a ‘behavioral’ planning approach and a heuristic were used in a single organization. In the second study, a ‘systems’ planning approach and the heuristic were applied in two organizations. The field experiments demonstrated that the normative planning methods produced plans with superior quality and higher information levels. No differences in plan innovation were observed. Some guides for practice were derived from these findings.