Convergences and divergences of public sector reform in Bhutan: dynamics of incremental and transformational policies

The convergence-divergence debate in public sector reform is ongoing, with evidence of both trajectories being prevalent empirically. Convergence-divergence at the start of the reform trajectory examines the similarity of the contents and the objectives of the reforms compared to best practices; and convergence-divergence at the end point examines the similarity of the outcomes of the reforms with their objectives. This article considers the convergence-divergence debate in public sector reform and examines when convergence and divergence occur along the reform trajectory. In doing so, the article uses as a case study the implementation of the position classification system (PCS) which was introduced in Bhutan in 2006. The PCS comprises a bundle of reforms that can be categorised as incremental and transformational. The experience of the PCS highlights the dynamics of incremental and transformational reforms, and explains why transformational reforms often lead to divergence. The article, in using a case study of a country that is relatively understudied, contributes to the extant literature on comparative public administration. It extends what is known about the convergences and divergences of public sector reforms by highlighting the importance of institutional and cultural contexts in the implementation of transformational reforms.