PUBLIC ADMINISTRATION AS STORYTELLING

I’ll tell you a story About Jack a Nory, And now my story's begun; I’ll tell you another Of Jack and his brother, And now my story is done. [Anon]A great writer of fiction both creates a new, unique, individual world – through acts of imagination, through language that feels inevitable, through commanding forms – and responds to a world, the world the writer shares with other people but that is unknown or miss‐known by still more people, confined in their worlds. Call that history, society, what you will. The writers who matter most to us are those who enlarge our consciences and our sympathies and our knowledge. [Susan Sontag] This paper elucidates the interpretive approach to public administration that Professor Rhodes and I have developed over the last ten years. It defends the importance of storytelling in governance. The early studies of governance often drew on modernist empiricism and policy network theory to argue that public sector reforms had created a differentiated polity. While this governance literature offered a compelling account of contemporary public administration, it rested on a modernist empiricism that proved vulnerable to questions such as those raised by rational choice theorists about its micro foundations. Professor Rhodes and I thus rejected modernist empiricism in favour of an emphasis on meanings and storytelling. Our interpretive approach rests on ‘meaning holism’. It replaces naÏve empiricism with an anthropological epistemology based on comparing rival accounts. It rejects reified ontologies for recognition of the constructed nature of social reality. It moves away from formal explanations towards historicism. It provides a defence of public administration as storytelling.