1 ÔThe information presented below is based on a preliminary study and should not be regarded as defnitive at this stage. 15 Public Administration Programmes in the United Kingdom 1 Professor John Greenwood, Dr. Lynton Robins De Monfort University 15.1 HISTORICAL FRAMEWORK Public Administration is a relatively recent subject within the UK; most major undergraduate programmes have been developed since the late 1960s. 15.2 INSTITUTIONAL SETTING Identifying Public Administration programmes is a difficult task as they are found with varying titles (Public Administration, Public Policy, Public Sector Management Government, etc.), and also exist within modular schemes offering the subject within joint, minor, major combinations etc. The analysis below is based on entries for Public Administration, Public Sector Management and Government in the ÔFull Time University Admission HandbookÔ. Public Administration developed mainly in the Polytechnics (vocational universities) from the late 1990s. (all of which were re-designated as universities in 1992 and are now popularly known as ÔNew UniversitiesÔ). The subject is still strongly represented in the new universities; indeed some of these also provide Higher National Diploma programmes in Public Administration, or provide ÔdegreeÔ top up or similar programmes for diploma holders. Outside the New Universities Public Administration is mainly represented a By ÔtraditionalÔ Universities teaching the subject from the perspective of government (e.g. Kent, London School of Economics). b By Public Policy and Management or similar (e.g. Aston, Birmingham) No traditional Universities offer Higher National Diploma programmes. Part Ð Time First Degree; and Postgraduate courses Part Time first degree programmes are relatively few, although not unknown (e.g. Ulster University Ð BA (Hons) Public Policy and Management). Some institutions also offer sub-degree level programmes at part-time level, although this is relatively rare in Universities. Postgraduate courses (e.g. MA Policy Studies) exist in around ten Universities, although most have a very limited intake. There is only one MPA (Masters in Public Administration) programme, offered by Liverpool University, although a number of MPA programmes do offer Public Sector elective/pathways (e.g. De Montfort University). 387
15.3 POSITIONING ACADEMIC PROGRAMMES Most of the Undergraduate Programmes were established on an interdisciplinary (and multi-disciplinary) basis, often from a social science (and especially political science) perspective. Over the time this has diminished as business and managerial perspectives have increased. In Scotland, which has a distinctive legal system, the link with Law has been stronger than in England, where there is no particular linkage between Public Administration and Law. Today the dominant approach varies between the social sciences and the managerial. Annex 15.1 lists the higher education degrees available in Public Administration studies in the UK. Entry requirements are as for other undergraduate programmes (normally Two passes at Advanced Level General Certificate of Education). Lower requirements (e.g. One Advanced Level pass) apply to Higher National Programme, many of which allow for transfer to a degree course after two years. Normal length of undergraduate programme is three years; four years where a placement (or internship) is offered. 15.4 COMPARATIVE AND EUROPEAN CONTENT The Anglo-American perspective which dominated early Public Administration courses is gradually being complemented by a European focus. In other words the context of Public Administration programmes in terms of perspectives, themes and intellectual origins remains strongly influenced by the Anglo-American tradition. However, most courses now include subject material concerned with European member states, European institutions with a special emphasis on the EU. A number of undergraduate programmes in European Public Policy, European Union Studies etc. are now provided and these are also listed in Annex 15.1. 15.5 RESEARCH Few universities offer research degrees and research funding for Public Administration (average about 620,000 per annum in the mid Ð 1990s from the main source of research grants) is low compared with other subjects. 15.6 RELATIONS WITH THE PROFESSION Neither central government nor subnational government looks to Public Administration as a specialised entry programme. However, one survey published in 1992, but based on 1988 data suggested that 37% of Public Administration graduates entered employment in local government; 25% in Health Authorities, 4% in central government and 5% in other public funded and voluntary bodies. However, 21% found employment in the private sector. A more recent survey of Public Administration undergraduates suggests that the later figure will increase as an increasing 388
PUBLIC A DMINISTRATION PROGRAMMES IN THE UNITED KINGDOM percentage of respondents anticipated that they will spend at least part of their career in the private sector. The relative lack of Master in Public Administration programmes reflects employer ambivalence towards the discipline, as most send their employees on MBA programmes or similar. Some Universities providing Public Administration programmes do specialise in research and consultancy and frequently win government contracts subject to a tendering process. 15.7 IN-SERVICE TRAINING AND STAFF DEVELOPMENT With in-service training and staff development the lead body for the civil service is the Civil Service College, Sunningdale, established in 1970 and since 1989 operated as a hived-off agency. The work of the College in the managerial and professional training of state bureaucrats is accountable to Parliament through the responsible Minister, the Chancellor of the Duchy of Lancaster. The College's formal mission reflects the institution's central purpose of providing management training for civil servants, particularly those at, or aspiring to, relatively senior positions; specialist training in key professional areas or at advanced levels; related consultancy and research. In a typical year 30,000 civil servants will attend the College's courses on a total of over 97,000 student days, generating an annual turnover of nearly 20 million. As well as providing training for domestic customers the College has played an overseas training role, most recently with the emerging democracies in Eastern Europe and South Africa. The recent White Paper, The Civil Service College: Continuity and Change (HMSO 1994), praised the College for its performance in the Ôcross-fertilisation of ideas between departments and between the Civil Service and the wider economy'. However, the College provides only small minority of civil service training. Departments provide departmentally specific training, which includes much of the routine staff induction training as well as their in-house training capabilities. It is commonplace for department to Ôbuy inõ expertise from either the College or from external agencies. With local government the designated Industry Training Organisation is the Local Government Management Board which receives a grant from public funds in support of its training role. This organisation has a duty to provide specific information on, and a strategic overview of, training needs in local government. It also has a key role to play in enhancing the effectiveness of training and ensuring that skill need are being met, and that appropriate standards are being established and maintained. The Board produces training manuals and materials but is not itself primarily a deliverer of training, this being the province of local authorities themselves. CONCLUSIONS 389
15.8 Public Administration studies in the UK face of number of challenges. The development of modular undergraduate programmes has tended to fragment the discipline, bringing about less coherence, at a time also when managerial and business perspectives have impacted increasingly upon the curriculum. European issues are also being steadily increased within the curriculum, giving rise to issues of subject overload and raising questions of balance with previously dominant Anglo-American perspectives. For a number of reasons undergraduate courses are less likely than in the past to incorporate placement (or internship) elements, reducing the contact between the academic and practitioner world. Public sector employers generally do not give preference for the relevance of Public Administration courses when recruiting graduate employees, although most Public Administration graduates (albeit a diminishing proportion) still obtain a career in the public sector. FULL TIME FIRST DEGREE COURSES: UNITED KINGDOM 390
PUBLIC A DMINISTRATION PROGRAMMES IN THE UNITED KINGDOM ANNEX 15.1 As indicated in the main report Public Administration and similar courses are taught under a variety of programme titles; and are often provided as combined/ major/ or minor elements within modular schemes, It is, therefore, difficult to ensure complete accuracy. However, the following represent the most clearly identified full time programmes leading to a first degree. It, therefore, does not include part-time subdegree level, or postgraduate programmes. It also excludes programmes Politics, Social Policy/ Administration, Leadership Studies, Urban Studies etc. and in European Studies (unless there is a clear focus on European Government/ Public Policy/ or European Union. Table 15A.1 Public Administration/Public Sector Studies Brighton De Montfort Glasgow Caledonian Manchester Metropolitan Teesside Public Policy and Administration Public Administration and Managerial Studies includes optional one year placement Public Administration and Management Public Policy and Administration Public Administration Public sector management Bradford and Ilkley College Organization Studies (Public Sector Management) Central Lancashire Public Sector Management Liverpool John Moores Public Service Management Public Policy Table15A.2 Birmingham Public Policy, Government and Management De Montfort Public Policy and Management Integrated with HND Manchester Metropolitan Public Policy and Administration Robert Gordon s, Aberdeen Public Policy and Management Sheffield Hallam Public Policy and Management 1 year top up (sandwich) to convert Public Policy and Management (F/Time) 391
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Table 15A.4 Government Central England Politics and Contemporary Governance Central Lancashire Politics and Government Glamorgan Government combined with 9 other subjects including European and International Business Kent Politics and Government combined with up to 13 Politics and Government other subjects including French, German, Italian London School of EconomicsGovernment, Government and Economics, Government and History, Government and Social Policy, Manchester Government and Political Theory Newcastle upon Tyne Government and European Union including one year abroad Northumbria Government and Public Policy Combined Courses with Public Administration Table 15A.5 Aston Public Policy and Management combined with choice of11 other subjects; 4 yrs F/T; 5 yrs sandwich Birmingham Public and Social Policy and ManagementPlanning and Public Policy Making and Administration De Montfort Public Policy combined with choice of 8 other subjects Glamorgan Public Policy Public Management allows Combined, Joint, Government and Politics Major, Minor programmes with up to over 60 subjects Goldsmith College Economics, Politics and Public (University of London) Policy Kent Social Policy and Public Management Leeds Metropolitan Economics and Public Policy Luton Public Policy and Management Joint, Major, Minor combination with over 60 subjects North London Public Administration and Education Studies 393