Developing and Understanding Cultural Change in Hm Customs and Excise: There Is More to Dancing Than Knowing the Next Steps

Increasingly, what was formerly known as public administration is turning itself into management, while management itself is fast becoming synonymous with the management of change. These two directions meet in government calls to change the culture of the civil service, and are to be found most clearly in the Financial Management Initiative (1982), and its successor, the Next Steps (1988). While each stresses a different aspect, the core policy idea which runs through them is one of improving performance by delegating power and responsibility down the hierarchy closer to the point of delivery. In this way the bureaucratic giants which comprise the various central government departments are transformed into more adroit organizations, to the extent that it becomes appropriate to talk of giants learning to dance (Kanter 1989). This article, through a discussion of ‘experiments in change’ conducted in one of the largest central government giants, HM Customs and Excise, argues that teaching giants to learn to dance is easier said than done. The main focus of the article is on what giants may need to learn in order that they can become more attuned to change and it concludes with the proposition that change in central government cannot be understood or be properly managed without an appreciation of the changing context of change itself.