Innovative Management in Public Organizations

Transkrypt

WSPÓŁCZESNE ZARZĄDZANIE 1/2011
CONTEMPORARY MANAGEMENT QUARTERLY 1/2011
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I. PROBLEMY WSPÓŁCZESNEGO
ZARZĄDZANIA(CONTEMPORARY
MANAGEMENT ISSUES)
Innovative Management in Public Organizations1
Andrzej Piotr Wiatrak*
Key words: public sector, innovative character, management, quality
Słowa kluczowe: sektor publiczny, innowacyjność, zarządzanie, jakość
Synopsis: The following issues have been discussed in the present article: the essence of innovative
approach in public organizations, types of innovative approach, i.e. innovative character of the managerial process and of the elements supplied, conditionings of public organizations’ innovative character
and possibilities of changes in this scope. The course and scope of the deliberations resulted from an
adopted stipulation that in Poland innovations in the management of public organizations are of minor
significance, which limits the processes of changes and development.
Innovative character is usually being associated with business organizations implementing various types of innovations (especially material innovations) in order to assure the
success of their activities, to facilitate an organization’s survival, to improve its competitiveness etc. However, not much is being said about the innovative character of public organizations, while they are expected to be innovative, to disseminate new ideas and activity models,
to facilitate the adoption of innovations and changes etc. As an example of such an approach
may serve the Lisbon Strategy and subsequent financial perspectives of the European Union,
defining the scope of activities of public organizations and support for their actions undertaken for the benefit of a society, including the actions of enterprises.
Taking into consideration the existing expectations from public organizations and the
need for their innovative character, the present article endeavours to define the essence of the
innovative approach in public organizations, types of those innovations and their conditionings. The article’s major thesis is the stipulation that in Poland innovations in the management of public organizations are insignificant, which limits change and development
processes. Such thesis has influenced the course of considerations, in particular in indicating
the areas for change and improvement of the existing management system.
The article was prepared on the basis of the subject literature, observations and conversations with administrators of public organizations and the author’s own considerations. Main
methods used were analysis and synthesis as well as induction, deduction and abduction.
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Introduction
The essence and types of innovative character in the public sector
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The public management refers to organizations providing public and social goods, acting
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*
Article made in the project of the Ministry of Science and Higher Education No N N115 118434
Prof. Dr hab. Andrzej Piotr Wiatrak, University of Warsaw
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A. P. Wiatrak, Innowacyjność w zarządzaniu organizacjami publicznymi
A. P. Wiatrak, Innovative management in public organizations
as state and local government entities, or private enterprises cooperating with them in the
framework of the public-private partnership. Such organizations operate on international and
national, as well as on regional and local levels. The area of operations of individual public
organizations influences the type of tasks and the manner of their organization. It is being
reflected in determining activity objectives of such organization, a type of needs satisfied and
its beneficiaries, a form of relations with other organizations etc. Therefore, while managing
an organization, the following aspects have to be determined:
– activity objectives,
– production resources,
– scope of activities,
– tasks executed,
– forms of relations with other public and private organizations, forms of communication etc.
External
environment
Internal
environment
Public
organization
and its
resources
Values,
aims and
task
Structures
and
instruments
Results
Figure 1. Activity model of public organization (Model działania organizacji publicznej)
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Source: [Wiatrak 2005, p. 17]
The general activity model of a public organization is similar to such of a business entity,
i.e. it takes into consideration resources owned and operational environment, and then goals,
tasks, structures and instruments (figure 1). The only difference refers to a broader consideration paid to an organization’s operational environment, especially to internal stakeholders for
whom it was created and operates. As a result, in the public organization management the
role of management socialization and the influence of individual groups of stakeholders on
values, goals and tasks is increased [Kożuch, 2004, p. 59; Wiatrak, 2010, p. 13-20].
In order to achieve the adopted goals, public organizations use various methods and support measures. One of them are innovations being the use in practise by an organization’s
administrators of a new idea (material and immaterial) with respect to an organization’s
functioning process, scope and form of its activities, organization of processes and work as
well as marketing. Utilization of such new idea constitutes a base for discerning respectively
[Oslo, p. 47-52]:
1. Process innovation – referring to the changes in a scope of provision of services by a
public organization including new or significantly improved methods and activities
defining their creation and operation;
2. Product innovation – referring to the introduction by a public organization of new
services or a significant improvement to previously provided services with respect to
their intended use, customer service, addressing needs etc.;
3. Organizational innovation – concerning the implementation by a public organization
of a new workplace organization and management methods, including the organiza-
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tion of internal and external relations;
Marketing innovation – including changes in information about a scope of a public
organization activities, changes adopted, new services, opening towards stakeholders, cooperation with other public and private organizations etc., resulting from a
new operational strategy of a given public organization.
The above mentioned innovations can be introduced individually or collectively, fostering the achievements of adopted goals and, consequently, the better functioning of a public
organization, increasing the volume of services provided, improvement of their quality as
well as their efficiency. In order to achieve it, innovative actions should be based on organized work, of global nature, uniting individual processes. Such approach can be seen in the
EU policy focusing on [Regulation, 2006, p. 3-4]:
– development of innovation and knowledge-based society, among others by creating
and strengthening efficient innovation-based economies,
– research and technological development, including strengthening research and technological development capacities,
– development of electronic communication infrastructure and information society,
– use of information and communication technologies and use of new ideas,
– stimulating innovation in all sectors of the regional and local economy by supporting
the introduction of new or improved products, processes and services, especially
those meeting EU requirements (e.g. supporting the implementation of environmentfriendly technologies in businesses).
In the above mentioned activities not only the dissemination of innovation activities is
emphasized, but mainly the creation of a system in which innovations can be developed and
implemented. Innovations are considered broadly as a complex technological, social, ecological and economic mechanism. “In order to increase the level of innovation within the economic environment it is anticipated to facilitate access to new technologies, to promote the
idea of innovation and research as well as reforms of the education system and vocational
training system to increase the level of youth’s professional qualifications. Strongly stressed
was also the need to undertake numerous stimulation activities for the development of new
forms of conducting economic activity, like for example marketing, product development,
logistics, supplies distribution” [Strategy 2002, p. 71]. Such activities are being supported by
the EU policy, along with public organizations whose task is to create organizational atmosphere enabling to implement innovations based on well thought out programmes of influence
on business organizations and entrepreneurs. It can be achieved by various ways, but support
institutions, being public organizations preparing the ground for specific actions and encouraging entrepreneurs, are fundamental. Such support results from the public sector’s tasks,
namely: to support socio-economic processes and to prepare entrepreneurs and employees. In
order for the support by public organizations to be possible, they have to become innovative
by means of changes in the area of activities and the applied operational solutions. It is being
achieved through two types of innovative activities of public organizations, namely through:
1. Innovative management process – as the introduction of new methods and techniques
of the public organization management;
2. Innovative elements supplied (otherwise innovative execution).
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Innovative character of management process in public organizations
Innovative character of management process in public organizations refers to the implementation of novel management methods and techniques enabling a better operation and
execution of adopted objectives and tasks. Such innovation directly concerns the management process but influences the entire functioning of public organizations, including specific
types of innovations, from the implementation of process, product and organizational innova-
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tions to marketing innovations. It results from the nature of management, so ordering and
linking operational processes in an organization. Improving the quality of public organizations operations is a continuous process, resulting from:
– needs and expectations of internal and external environment,
– changes in environment,
– fixing imperfections in their functioning and insufficient addressing social needs,
– adopted operational strategies.
The scope of innovative approach to the management process in a public organization
differs according to the area of changes implemented and solutions applied. Innovative
character of the management process can refer to individual aspects of a public organization’s operation (e.g. modifications in the scope of motivating a public organization’s employees or contracting particular tasks – previously self-executed – to a private or social
organization), but also its entire functioning (e.g. managing a public organization through
projects or contracting particular tasks in their whole to a private or social organization under
the public-private partnership).
In order to achieve the innovative character of the management process in a public organization, various management methods can be applied, selected depending on a public organization’s administrators, the scope of its operations, a problem to be solved etc. Moreover,
trends to use particular methods in a given period of time have to be taken into consideration.
Trends concerning particular management methods exert a significant influence over their
choice and usage, along with the type of an organization’s activities. Although the innovative
character of the management process in public organizations can be achieved by means of
different management methods and techniques, in the last years changes in the following
areas have been most frequently applied:
1. Process based management aiming at the identification of a particular process, its
reconstruction or change and elimination of dangers hampering its execution and effectiveness. While reconstructing a process the attention is paid to eliminate activities which do not bring new values but result in generating higher costs relating to
its execution, including time. Optimization of time should therefore be taken into
account by means of [Zimniewicz, p. 65]:
– shortening of processes (time economy)
– reform of existing processes (time fluency),
– reduction of expenses generated by particular activities in a process (rationalization),
– observation of deadlines (punctuality),
– development of new services of public organizations and processes connected
with their execution (innovative character).
The process based management is related to the use in public organizations of such
methods as outsourcing, lean management and benchmarking in particular, as well
as the quality based management and project based management. Reengineering and
time based management are of minor importance, as they demand global changes in
public organizations and these – executing their objectives and tasks – most often
cannot afford even a temporary suspension of their execution.
2. Quality based management aiming at „establishing – basing on management theory
and quality theory findings – and using in organizations of rules and activity models, enabling the economical achievement of the quality as fully as possible addressing the needs of its customers” [Hamrol, 2008, p. 61-62]. Quality, understood as innovation, is one of the most important issues an organization manager should focus
on. Quality has to be managed. Therefore, public organizations seek ways to the
best possible addressing stakeholders’ expectations by achieving adopted goals and
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their quality, in the same time keeping their social responsibility towards their operational environment. One of the basic tools enabling to meet these requirements are
norms and certificates defining the quality of an organization’s operational
processes and the quality of its products (most often of provided services). Responsibility and engagement of executives is one of the quality management fundaments
taking place through the actions [Łunarski, 2008, p. 209 ff]:
– investment and innovative,
– preventive,
– corrective.
Quality based management is a common method used in public organizations. It is
usually applied by obtaining quality certificates (especially ISO 9000 and ISO
14000) but also by employing rules, instruments and systems relating to the Total
Quality Management (TQM). It is therefore a variety of the management by objectives, a kind of system in which executives’ task is to create conditions motivating
to implement innovations regarding the achievement of adopted goals and an employee’s task is to independently take care of the high quality of his or her work.
3. Project based management – is a process of steering and conducting projects aiming
at the execution of an organization’s goals. Nowadays many objectives and tasks incorporated in public organizations’ strategies are executed by means of projects implemented by these organizations directly or through business and social organizations. Projects – as complex actions undertaken in order to achieve an adopted goal
within a specific period of time and space and under a specific budget – are usually
executed by means of a competition and a contract addressed to private and social
organizations [Roszkowski and Wiatrak, 2006, p. 16 ff]. Such execution is most frequently performed by means of a public procurement and a public-private partnership, carried out through service subcontracting, management contracts, lease or
concession obtaining. Such behaviour of public organizations is influenced by the
public services marketing, the public organizations “leaning” and the multiplicity of
tasks and care for their effective execution. Public-private partnership (PPP) can be
generally defined as a joint undertaking in cooperation between a state and a private
business in the framework of which a private partner will entirely or partially cover
expenses incurred by the execution of a given undertaking or will secure such resources from a third party. The public sector – along with the society – is a principal
beneficiary of services provided under PPP, and in the same time strongly influences the characteristics and features of a given service (like quantity, quality, deadline etc.) [Kargol, 2008, p. 281-293]. While starting a cooperation with other entities, public organizations should be well prepared. Cooperation between the public
and private sectors is executed in keeping their own goals, hierarchies and commitments. For the effective management of PPP not only links between cooperating
entities are required, but also the preparation of the cooperation as well as the highquality infrastructure and network administrators. For this aim, the management of
cooperation with other organizations requires the development of communication
between them, the creation of formalized information flows and information sharing
channels, trust between partners etc. It is worthwhile to form the partnership on the
foundation of the system and process approach, and to clearly formulate and define
the methods of selecting a private partner (most often a tender and competitive negotiations).
4. Management by budgeting – as creating of a budget model, adjusted to a specific
character of a public organization and the nature of its operations and the scope of
activities. Budgets are prepared in different time perspectives and using various me-
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thods, which makes it possible to draft their successive versions, simulations, periodical revisions etc. Basic methods used in this scope by public organizations are
primarily [Zalewski, 2005, p. 51-53]:
– activity based budgeting;
– activity budget,
– programme budgeting;
– zero-based budgeting;
– top-down budgeting,
– bottom-up budgeting,
– balanced scorecard,
– value management etc.
The above mentioned methods aim at the better application of budgets and to make
them more adjusted to the conditionings of a public organization’s operation.
Changes in the financial management in public organizations are reflected “in resigning from the expenditures control by searching the effectiveness in using budgeting and control as elements to improve efficacy. Therefore it has to be added that
results-based management has not replaced the responsibility of authorities for public funds spending. As a result (…) public organizations often draft programme
budgets or activity budgets in order to improve effectiveness, and traditional budgets as expenditures control instruments” [Zalewski 2005, p. 55]. It means that all
these instruments used in line with budgets do not replace one another, but complement. Budgeting systems embrace drafting, implementation, execution and control
of a budget, provide knowledge of future costs and incomes and bring it closer to
operational levels. Bring it closer, because they do not provide comprehensive information on the effectiveness of actions because it is difficult to define the results
of activities as far as addressing public and social goods is concerned, as well as to
divide these results while addressing different social needs. Nevertheless, capacities
of the best possible funds spending in public organizations are searched for because
of the effectiveness of their use and the limited possibilities of their increasing. The
above mentioned balanced scorecard, as well as controlling, can be tools enabling
the improvement of use of public organizations resources.
A basis for the innovative management process are managerial skills – including the
evaluation of projected goals and tasks execution, determining of a suitable direction for
actions and a way of its implementation, staff selection and motivation, team management,
management by participation, cooperation with stakeholders, conducting negotiations etc.
This innovative approach results in the execution of adopted objectives and tasks and the
improvement of the quality of public organizations management.
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Innovative character of elements supplied in public organizations
Innovative character of elements supplied (in other words innovative approach to execution, type, volume and quality of changes applied etc.) defines the usefulness of changes
applied and their influence on the improvement of the effectiveness and reliability of a public
organization’s operation. These changes on the one hand result in the optimization of an
organization’s activities, on the other – influence the increase of the capacity to better address the needs of a public organization’s stakeholders and the improvement of its image.
This is why it is important to attempt to adapt the objectives and tasks of a public organization as well as the applied changes to its stakeholders’ expectations and to enable better
addressing the needs of particular groups (e.g. by means of the execution of a project and
implementing by this innovative customer service solutions, launching new types of services
for society, development of technical, social, economic infrastructure etc.). All these changes
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result from the implemented solutions relating both to determining public organizations’
goals and tasks, and to managing them. One has to take into consideration on the one hand
executives’ skills and their activeness towards changes, on the other – the activeness in this
respect of particular groups of stakeholders. Stakeholders’ task is to support the actions of
managers, but also to influence them in case of their passivity, by suggesting directions for a
public organization’s actions etc. This way – by means of the socialization of the management process – the capacity of the execution of a public organization’s adopted goals and
tasks, also by innovations, is increased, and in the same time the improvement of management process quality becomes possible. The quality of the management process defines the
quality of elements supplied, creating the effect of a public organization’s operational strategy, expressed by developing and offering of a certain product or a service better addressing
social needs. The innovative character of elements supplied by a public organization depends
on the one hand on a type of its management (especially managerial skills along with their
use), on the other – on resources owned (or the budget owned), the scope of activities,
deadline for adopted objectives and tasks execution etc. Relations between these factors can
be seen in the figure 1, pointing to a need of their mutual adjustment in order to achieve a
projected effect (desired quality).
managerial skills
time
resources, cost
quality
scope
Figure 2. Determinants of management quality (Uwarunkowania jakości zarządzania)
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Source: Adapted from [Mingus, 2002, p. 22].
If objectives and tasks of a public organization – defining the scope, scale and agreed actions – grow, the need to expand resources (along with costs) or the time of execution, or
both factors, also increases. Resignation from their expansion reduces the quality of execution, along with stakeholders’ dissatisfaction, and, in the same time, results in arising of
losses connected with the ineffective use of the resources owned. The same relationships can
be noticed within the remaining factors, which shows that aiming at the fast execution of
objectives and tasks of a public organization or their partial financing decrease the capacities,
but above all the quality of their execution. It is reflected in the “flattening” of the circle as
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the effect of an imbalance between the factors defining the execution and the quality of
adopted objectives and tasks.
Lack of this balance most frequently results from insufficient managerial skills and of too
numerous tasks for capacities. It has to be taken into consideration that enlarging the scope
of activities (as it is often the case in public organization) without paying attention in advance to the remaining factors, reduces the quality of execution and even with high managerial skills not much can be done. On the other hand, even the best operational strategy of
an organization may not be executed if there are insufficient managerial skills and managers’
efforts aiming at its execution. Lack of the capacity to perform and/or the decrease of the
quality of execution does not act in favour of the improvement of innovative character of
elements supplied and usually limits its implementation, although public organizations – in
line with expectations – should be a model of innovative character.
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Conditionings for innovative approach in public organizations
Implementation of innovations by a public organization in conjunction with the quality of
their management creates the possibilities of improving the organization’s functioning and
the level of addressing the social needs. In the same time many public organizations in
practice do not take advantage of opportunities to change, to implement innovations, to
improve processes etc. Does it result from the lack of will to act and change, or perhaps from
some other factors? Most frequently there are multiple conditions, partially relating to a
public organization’s specific character, but also partially to the incomplete exploration of its
operational environment and factors influencing its course.
While analyzing public organizations, the following conditions of their innovative character can be demonstrated:
1. Resource factors – referring to the lack of resources (finances, material resources,
employment and qualifications, information etc.) making it impossible to prepare a
strategy enabling to address the existing needs within public and social goods or –
after the preparation – its execution.
2. Personnel factors – referring to the lack of adequately qualified employees, resulting
from the existing recruitment, promotion and motivation systems in public organizations. Practice to date shows that in these organizations the HR process usually is not
of a system character, from the employment of executives, to the employment of
staff. It results from a variety of reasons, but primarily from administrators’ tenures
and related employees’ tenures. It is being observed that along with a change of
management, employees also change and are often unprepared and need to learn.
Executives’ tenure system also does not favour the development and improvement of
employees who may choose a strategy of survival and waiting. Moreover, in many
public organizations an approach focused on staff administering, and not creating social potential and managing it, predominates. Such processes and approach to employees in public organizations do not foster the improvement of staff quality and,
consequently – their engagement and innovative approach.
3. Managerial factors – executives in public organizations differ as far as their recruitment, skills and management area are concerned. On the one hand managers are employed, on the other – there are individuals appointed by competition who are not
always sufficiently prepared to manage an organization, on yet another – there are
individuals representing a particular political option who do not have to be managerially trained. All these three groups take decisions and responsibility for them, as
well as for an organization’s correct functioning. A part of executives are specialists
responsible for a specific area of management, while they are not fully independent;
they have to follow their superiors’ guidelines (which is natural), often characterized
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by a quite significant variableness. Because of such factors, management quality in
public organizations deteriorates, as a consequence of:
– improper operational goals,
– separation of goals and tasks from resources and their quality,
– lack of planning in the management system,
– lack of preparation of multi-variant plans,
– lack of management socialization in public organization,
– disregarding risk and insecurity, including those resulting from environment
changeability etc.
4. Legal factors - define the rules of public organizations’ functioning, decision making, cooperation with other entities etc. Legal and system conditionings can both facilitate and impede activities of public organizations and their executives. On the one
hand the support for the actions of public organizations can be noticed, on the other –
legal limitations of activities conducted or choices made. As an example may serve
the public-private partnership creating new possibilities of public and social goods
development and in the same time – restrictions of the cooperation exist. A basis for
this cooperation should be an assumption that “cooperation between private and public sectors does not need to threaten with corruption, and it is simply a new concept
of public management in the context of changes in the public goods and services
market. PPP can be treated as an element of an institutionalized change in the public
functioning” [Kargol, 2008, p. 287-288]. As a result, executives need have a deeper
decision-making independence in issues concerning the selection of the execution of
adopted and agreed objectives and actions of a public organization, objectives and
actions accepted by its stakeholders. Moreover, according to the new public management, executives must have freedom in decision-making and staff administering.
Such liberty is reflected e.g. in negotiating employment contracts, way of the provision of work, working time, including contracts for specific tasks. Management in
this scope is based on the execution of an organization’s objectives and tasks, implementation of innovations etc., so operational performance and efficacy.
The presented selected factors of the innovative character in public organization are mutually closely related. They determine the course of processes in a public organization, along
with the capacities, volume and quality of the execution of adopted objectives and tasks.
These factors can act as stimuli of development and innovative character in public organizations when there is a system approach to management, but can also become discouragements
(barriers) when there are no links between individual factors and solutions of the arising
organizational problems. In consequence, it is worthwhile to consider what and how should
be changed in order to increase the effectiveness of the activities of a given public organization.
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Conclusions
Basing on the considerations made, the following dimensions of innovative character can
be identified in a public organization: innovative character of the managerial process and of
the elements supplied, while:
1. Innovative character of the managerial process can refer to individual aspects of a
public organization’s functioning as well as to its entire operation.
2. For the innovative character of the managerial process in public organizations different management methods can be applied, selected depending on executives of a public organization, a scope of its activities, a problem to be solved etc., as well as on
trends to use particular methods in a given period of time.
3. Innovative managerial process in public organizations most frequently embraces the
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4.
5.
6.
following areas: processes, quality, projects, budgeting and managerial work.
Innovative character of elements supplied (in other words innovative execution, type,
volume and quality of changes applied etc.) refers to the usefulness of changes implemented, fosters the improvement of efficacy and reliability of a public organization’s actions.
Innovative character of elements supplied by a public organization depends on the
one hand on the type of management (especially managerial skills along with their
use), on the other – on resources owned (or budget owned), scope of activities, deadline for the adopted objectives and tasks execution etc.
The quality of the managerial process determines the quality of elements supplied,
creating an effect of an agreed operational strategy of a public organization, expressed in developing and offering of a specified, planned product or service able to
better address social needs.
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Innowacyjność w zarządzaniu organizacjami publicznymi
W artykule przedstawiono następujące zagadnienia: istotę innowacyjności w organizacjach
publicznych, rodzaje innowacyjności, tj. innowacyjność procesu zarządzania i dostarczanych
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elementów, uwarunkowania innowacyjności organizacji publicznych oraz możliwości zmian
w tym zakresie.
Ogólny model działania organizacji publicznej jest podobny do modelu organizacji
biznesowej, tzn. uwzględnia posiadane zasoby i środowisko działania, a następnie cele,
zadania, struktury i instrumenty. Do realizacji przyjętych celów organizacje publiczne
wykorzystują różne metody i środki wspierania. Jednym z nich są innowacje, polegające na
zastosowaniu w praktyce przez zarządzających organizacją nowej idei (materialnej i
niematerialnej) w odniesieniu do procesu funkcjonowania organizacji, zakresu i sposobu jej
działania, organizowania procesów i pracy oraz marketingu. Wprowadzenie nowej idei jest
podstawą
wyróżnienia
odpowiednio
innowacji:
procesowych,
produktowych,
organizacyjnych i marketingowych. Mogą być one wdrażane samodzielnie lub też razem,
sprzyjając realizacji przyjętych celów, a wraz z tym lepszemu funkcjonowaniu organizacji
publicznej, zwiększeniu wielkości świadczonych usług, poprawie ich jakości, jak i
wydajności. Aby tak się stało, działania innowacyjne powinny być oparte na pracy
zorganizowanej, o charakterze całościowym, łączącym poszczególne procesy. Takie
podejście występuje w polityce UE, w której stawia się na rozwój innowacyjności i
społeczeństwa opartego na wiedzy, m.in. poprzez tworzenie i umacnianie sprawnych
gospodarek opartych na innowacyjności, Odbywa się to dzięki dwóm rodzajom
innowacyjności organizacji publicznych, a mianowicie innowacyjności procesu zarządzania i
innowacyjności dostarczanych elementów.
Innowacyjność procesu zarządzania – w organizacjach publicznych obejmuje
wprowadzenie nowych metod i technik zarządzania, które pozwalają organizacji lepiej
funkcjonować oraz realizować przyjęte cele i zadania. Innowacyjność ta bezpośrednio
dotyczy procesu zarządzania, ale ma wpływ na całość funkcjonowania organizacji
publicznych, w tym na poszczególne rodzaje innowacji, poczynając od wprowadzenia
innowacji procesowych, produktowych i organizacyjnych, a kończąc na innowacjach
marketingowych. Innowacyjność procesu zarządzania może dotyczyć pojedynczych
aspektów funkcjonowania organizacji publicznej (np. zmiany w zakresie motywowania
zatrudnionych w organizacji publicznej czy zlecenia wykonania określonych zadań –
realizowanych dotychczas we własnym zakresie – organizacji prywatnej lub społecznej), ale
także całości jej funkcjonowania (np. zarządzania daną organizacją publiczną przez projekty
albo przekazania całości danych zadań organizacji prywatnej lub społecznej w ramach
partnerstwa publiczno-prywatnego). Do wzmocnienia innowacyjności procesu zarządzania
organizacji publicznych mogą być zastosowane różne metody zarządzania, których wybór
zależy od zarządzających organizacją publiczną, zakresu jej działania, problemu do
rozwiązania itp. Ponadto należy uwzględnić także swoistą modę na stosowanie pewnych
metod panującą w danym okresie. W ostatnich latach najczęściej stosuje się zmiany
dotyczące: zarządzania poprzez procesy, zarządzania poprzez jakość, zarządzania poprzez
projekty i zarządzania poprzez budżetowanie. Podstawą innowacyjności procesu zarządzania
są umiejętności kierownicze – obejmujące oceny wykonania projektowanych celów i zadań,
wyznaczenie właściwego kierunku działania i sposobu jego wdrażania, doboru ludzi i ich
motywowania, zarządzania zespołami, zarządzania poprzez partycypację, współpracy z
interesariuszami, prowadzenia negocjacji itp. Natomiast efektem tej innowacyjności jest
realizacja przyjętych celów i zadań oraz poprawa jakości zarządzania organizacjami
publicznymi.
Innowacyjność dostarczanych elementów (inaczej innowacyjność wykonania, rodzaj,
wielkość i jakość wprowadzanych zmian itp.),określa przydatność wprowadzonych zmian
oraz ich wpływ na poprawę skuteczności i niezawodności działania organizacji publicznej.
Zmiany te z jednej strony prowadzą do optymalizacji działań danej organizacji, z drugiej zaś
wpływają na zwiększenie możliwości lepszego zaspokojenia potrzeb interesariuszy
organizacji publicznej i poprawę jej wizerunku. Zadaniem interesariuszy jest wspomaganie
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działań zarządzających, ale także wywieranie wpływu na zarządzających w przypadku braku
ich aktywności, podpowiadanie kierunków działań organizacji publicznej itp. W ten sposób –
poprzez uspołecznienie procesu zarządzania – zwiększa się możliwość realizacji przyjętych
celów i zadań organizacji publicznej (w tym poprzez innowacje), a jednocześnie możliwa
jest poprawa jakości procesu zarządzania.
Wprowadzenie innowacji przez organizację publiczną w połączeniu z odpowiednią
jakością zarządzania nimi stwarza możliwości lepszego funkcjonowania organizacji i
zaspokajania potrzeb społecznych. Tymczasem w praktyce wiele organizacji publicznych nie
wykorzystuje możliwości zmian, wprowadzenia innowacji, udoskonalenia procesów itp.
Należy się zastanowić, co jest powodem takiego zachowania. Najczęściej w grę wchodzą
wielorakie uwarunkowania, częściowo związane ze specyfiką organizacji publicznej, ale
częściowo wynikające także z niepełnego rozpoznania środowiska działania organizacji i
czynników, które mają wpływ na przebieg tych działań. Analizując kondycję organizacji
publicznych można wskazać na podstawowe uwarunkowania ich innowacyjności: zasobowe,
kadrowe, menedżerskie i prawne. Uwarunkowania te są ze sobą ściśle powiązane, określając
przebieg procesów w organizacji publicznej, a wraz z tym możliwości oraz wielkość i jakość
realizacji przyjętych celów i zadań. Mogą być stymulantami rozwoju i innowacyjności
organizacji publicznych w przypadku systemowego podejścia do zarządzania, ale też mogą
stać się destymulantami (barierami), gdy zabraknie powiązania między poszczególnymi
uwarunkowaniami oraz gdy pojawiające się problemy organizacyjne nie będę rozwiązywane.
W związku z tym warto zastanowić się, co i w jaki sposób zmienić, aby usprawnić działania
danej organizacji publicznej.
Tok i zakres prowadzonych rozważań wynikał z przyjętej tezy badawczej, zakładającej,
że w Polsce innowacje w zarządzaniu organizacjami publicznymi odgrywają niewielkie
znaczenie, co ogranicza procesy zmian i rozwoju. Na podstawie przeprowadzonych
rozważań można wskazać, że:
innowacyjność procesu zarządzania może dotyczyć pojedynczych aspektów
funkcjonowania organizacji publicznej, jak i całości jej funkcjonowania;
dla innowacyjności procesu zarządzania organizacji publicznych mogą być zastosowane
różne metody zarządzania, których wybór zależy od zarządzających organizacja, zakresu jej
działania, problemów do rozwiązania itp., a także od mody na stosowanie określonych
metod;
innowacyjność procesu zarządzania w organizacjach publicznych obejmuje najczęściej
procesy, jakość, projekty, budżetowanie i pracę kierowniczą oraz metody zarządzania takie
jak outsourcing, lean management i benchmarking oraz TQM;
innowacyjność dostarczanych elementów (inaczej innowacyjność wykonania, rodzaj,
wielkość i jakość wprowadzanych zmian itp.), określa przydatność wprowadzonych zmian,
sprzyja poprawie skuteczności i niezawodności działań organizacji publicznej;
innowacyjność elementów dostarczanych przez organizację publiczną zależy z jednej
strony od sposobu zarządzania nią (zwłaszcza umiejętności kierowniczych wraz z ich
zastosowaniem), z drugiej zaś – od posiadanych zasobów (czy też posiadanego budżetu),
zakresu działań, terminu realizacji przyjętych celów i zadań itp.;
jakość procesu zarządzania określa jakość dostarczanych elementów, tworzących efekt
przyjętej strategii działania organizacji publicznej, wyrażający się w wykonaniu i
przekazaniu do użytkowania określonego, założonego produktu lub usługi, lepiej
zaspokajającego potrzeby społeczne.

Innovative Management in Public Organizations

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