Chapter 11 Public Managers Must Also Be Leaders: The Hollowing-Out of Leadership and Public Management Reform in Hong Kong

This chapter examines the role and importance of leadership in public management reform through the experience of Hong Kong. It aims to identify the gap between leadership in public organizations and public management reform in both theory and research and to make recommendations on how the gap can be bridged, particularly under the Asian context. It is a major irony that while both leadership and public management reform have a common concern of fostering positive change in public organizations, these two streams of research are separated, incompatible, and even conflicting. While leadership study is influenced by disciplines such as the psychology and emphasizes a multifaceted approach, most public management reforms are based on the New Public Management (NPM) model which is economics-oriented and structure-driven. Through studying the role of leadership in the public management reform in Hong Kong, it is argued the hollowing-out of leadership in reform is often one of the leading causes for the failure to achieve the expected outcomes. This chapter will elaborate its argument in the following sequence. First, it will review the generic literature on leadership to highlight the importance and relevancy of leadership for public organizations. Second, it will point out the leadership crisis in public management reform caused by the dominance of the NPM model. Finally, it will discuss the negative impact of the hollowing-out of leadership on public management reform and how this problem should be tackled.