comparative public management and policy pia 3090
TRANSCRIPT
Comparative Public Comparative Public Management and Management and PolicyPolicy
PIA 3090PIA 3090
The Main EventThe Main Event
I. Golden Oldies:I. Golden Oldies:
II. Literary Map:II. Literary Map:
III. Grand Synthesis:III. Grand Synthesis:
Bureaucracies, Politicians Bureaucracies, Politicians and Clientsand Clients
Overall Themes of the Week: Overall Themes of the Week:
1.1. Prologue: An Overview of Public Sector ReformPrologue: An Overview of Public Sector Reform
2.2. Clients: The comparative advantage of the "Iron Triangle" Clients: The comparative advantage of the "Iron Triangle" model. model.
3.3. Clients and Democracy: Legislature-Executive-Lobbyist Clients and Democracy: Legislature-Executive-Lobbyist
4.4. Corporatism as the Alternative ConceptCorporatism as the Alternative Concept
5.5. Evaluating ReformEvaluating Reform
Prologue: An Overview Prologue: An Overview of Public Sector Reformof Public Sector Reform
Reform Epochs:Reform Epochs:
1616thth Century France: Separation of King from Century France: Separation of King from retainers. Creation of Bureaucracyretainers. Creation of Bureaucracy
1818thth Century Prussia: Cameralism- Defined civil Century Prussia: Cameralism- Defined civil administrators in public and Corporate Sectoradministrators in public and Corporate Sector
Nineteenth Century: British India and British Nineteenth Century: British India and British Reforms: Selection by Examination and Reforms: Selection by Examination and Interview Interview
Rembrandt's paintingRembrandt's painting“The Mercantilists”“The Mercantilists”
The Problem:The Problem:
InefficiencyInefficiency
CorruptionCorruption
Interest InfluenceInterest Influence
AuthoritarianAuthoritarian
Kenya PosterKenya Poster
How to Reform:How to Reform:
Organizational and Administrative Reform Organizational and Administrative Reform (Motivation and Communication)(Motivation and Communication)
Civil Service Reform (Recruitment)Civil Service Reform (Recruitment)
Fiscal Reform (Spending and Ownership)Fiscal Reform (Spending and Ownership)
Policy Reform (Law and Order vs. Policy Reform (Law and Order vs. Development)Development)
Modern Reforms: U.S. Modern Reforms: U.S. ModelModel
U.S. Civil Service Reform: U.S. Civil Service Reform: 1883: End of Spoils1883: End of Spoils
Hoover Commissions: 1940s Hoover Commissions: 1940s and 1950s (Admin. Reform)and 1950s (Admin. Reform)
New Public Administration: New Public Administration: Advocacy Reform and Advocacy Reform and Affirmative ActionAffirmative Action
Structural Adjustment: Debt Structural Adjustment: Debt Management and PrivatizationManagement and Privatization
New Public Management: New Public Management: Customers and ClientsCustomers and Clients
Clients: The Role of Clients: The Role of GroupsGroups
The Role of GroupsThe Role of Groups
Reform PerspectiveReform Perspective
Extent of access to public sectorExtent of access to public sector
Iron TriangleIron Triangle
Problem of Illicit Access Problem of Illicit Access
The Iron Triangle and the The Iron Triangle and the Revolving DoorRevolving Door
Group Influences-Five Group Influences-Five Models:Models:
1. Japan/Asia- Johnson's perspective (State Centric 1. Japan/Asia- Johnson's perspective (State Centric Planning and one way movement)Planning and one way movement)
2. Europe- (Orwell, Greene, Heady (Representation 2. Europe- (Orwell, Greene, Heady (Representation vs. Corporatism)vs. Corporatism)
3. U.S.- Pluralism vs. Elite Theory (Truman vs. C. 3. U.S.- Pluralism vs. Elite Theory (Truman vs. C. Wright Mills)Wright Mills)
4. Latin America: Military Corporatism and Patron 4. Latin America: Military Corporatism and Patron Client RelationshipsClient Relationships
5. Africa: Crony Capitalism5. Africa: Crony Capitalism
LDCsLDCs
An absence of "clients" or Too many?An absence of "clients" or Too many?
The Role of patronage, corruption and The Role of patronage, corruption and Crony capitalism.Crony capitalism.
-Indonesia-Indonesia-Korea-Korea-West Africa-West Africa-China-China-U.S.?-U.S.?
Crony CapitalismCrony Capitalism
ISSUE:ISSUE:
Public Interest vs. private interests Public Interest vs. private interests (and the bureaucracy as an interest (and the bureaucracy as an interest group)group)
Question: Is there such a thing as a Question: Is there such a thing as a Public Interest Group? (PIG)Public Interest Group? (PIG)
NGOs: Public, private or Ideological?NGOs: Public, private or Ideological?
Clients and Clients and DemocracyDemocracy
Major themes in Major themes in Comparative Public Comparative Public Administration-Administration-
Administrative Structures and Society-Administrative Structures and Society-
1.1. Individualist view of state-society relationshipsIndividualist view of state-society relationships
a. Common law view of society;a. Common law view of society;
b. Anglo-Saxon model: law and order as b. Anglo-Saxon model: law and order as basic function of government; basic function of government;
c. Society made up of individuals- c. Society made up of individuals- liberalismliberalism
Partisanship, Democracy Partisanship, Democracy and Bureaucracy and Bureaucracy
a. Fused vs. Separation of Powers a. Fused vs. Separation of Powers “Yes Minister” (Britain)“Yes Minister” (Britain)
b. Cabinet Government vs. b. Cabinet Government vs. Presidential Systems- Collective Presidential Systems- Collective Responsibility (U.S. Latin America Responsibility (U.S. Latin America and France- Mixed)and France- Mixed)
c. Legislatures- Committee systems, c. Legislatures- Committee systems, Groups and bureaucratic authorityGroups and bureaucratic authority
Liberalism or Not Liberalism or Not LiberalismLiberalism
Administrative Structures Administrative Structures and Societyand Society
2. Statist view of Society- Collectivist (Frances 2. Statist view of Society- Collectivist (Frances FitzGerald- FitzGerald- Fire in the LakeFire in the Lake on Vietnam)- Three on Vietnam)- Three ViewsViews
a. Idea of an active, creative state, a. Idea of an active, creative state, development oriented (Keynes)development oriented (Keynes)
b. Marxist-Leninist model- communitarianb. Marxist-Leninist model- communitarian
c. Corporatist idea of society as groups- c. Corporatist idea of society as groups- civil civil service as a group (Western Europe)service as a group (Western Europe)
Corporatism as the Corporatism as the Alternative ConceptAlternative Concept
The Power of the GroupThe Power of the Group
AuthoritarianismAuthoritarianism
Authoritarian systems- Authoritarian systems- Structures to protect Structures to protect citizens from fused state citizens from fused state and bureaucracyand bureaucracy
Non-Constitutional Non-Constitutional Systems: Military Regimes Systems: Military Regimes and One Party States- and One Party States- Politicized bureaucracy Politicized bureaucracy
Rent Seeking, Nepotism Rent Seeking, Nepotism and Corruptionand Corruption
Evaluating ReformEvaluating Reform
Political Structures and Political Structures and Public Management ThemesPublic Management Themes
1. Issues of Governance, Interests 1. Issues of Governance, Interests and Political Developmentand Political Development
2. The Administrative State Concept: 2. The Administrative State Concept: Weak Political controls and a strong Weak Political controls and a strong bureaucratic elitebureaucratic elite
Control: How to vs. Control: How to vs. Should one?Should one?
Political Structures and Political Structures and Public ManagementPublic Management
3.3. Elite vs. egalitarian views of public service. (A Elite vs. egalitarian views of public service. (A Reminder)- Interests within the State)Reminder)- Interests within the State)
a. Maximum Deferred Achievement (No a. Maximum Deferred Achievement (No pre-selection)pre-selection)
b. Maximum Ascriptive Model (Class b. Maximum Ascriptive Model (Class based)based)
c. Progressive Equal Attrition Model c. Progressive Equal Attrition Model Egalitarian- Professional- collectivistEgalitarian- Professional- collectivist
Political Structures and Political Structures and Public ManagementPublic Management
4. Structure of Civil Service Systems: The role of 4. Structure of Civil Service Systems: The role of Mandarins and political penetration into the civil Mandarins and political penetration into the civil serviceservice
5. Decayed and Transferred Institutions: (Kings 5. Decayed and Transferred Institutions: (Kings and Colonies)- The creation of an organizational and Colonies)- The creation of an organizational bourgeoisie (Irving Markovitz)bourgeoisie (Irving Markovitz)
6. Corporatist Systems can be royalist, military, 6. Corporatist Systems can be royalist, military, social (Spain, Argentina, Scandinavia)social (Spain, Argentina, Scandinavia)
The Myth: Classical Non-The Myth: Classical Non-PartisanismPartisanism
The Politics/Administration Dichotomy: The The Politics/Administration Dichotomy: The Role of Non-Partisan Movements and Role of Non-Partisan Movements and Generic ManagementGeneric Management
POSDECORB (Luther Gulick)POSDECORB (Luther Gulick)
(Planning, Organizing, Staffing, Directing, (Planning, Organizing, Staffing, Directing, Coordinating, Reporting, and Budgeting)Coordinating, Reporting, and Budgeting)
How Neutral?How Neutral?
Differences between the public and Differences between the public and the private sector- How much, or the private sector- How much, or how little?how little?
a. No significant differences between a. No significant differences between personnel in large private vs. public personnel in large private vs. public organizationsorganizations
b. Differences in the structures within b. Differences in the structures within which the individual has to workwhich the individual has to work
c. The bureaucracy is an institution of c. The bureaucracy is an institution of governmentgovernment
Government: Differences Government: Differences from the private sector-from the private sector-
Difference in ProductDifference in Product
a. Private- emphasis is on profit, economy a. Private- emphasis is on profit, economy and efficiencyand efficiency
b. Public- need to account for the political b. Public- need to account for the political and social- not what is always efficientand social- not what is always efficient
c. Issue- motivation or its absence in the c. Issue- motivation or its absence in the public sectorpublic sector
Recruitment: The Only Recruitment: The Only Game in Town (for Reform)Game in Town (for Reform)
KEY: The recruitment of professionals and KEY: The recruitment of professionals and specialists contradicts with the issue of political specialists contradicts with the issue of political controlcontrol
a. Problem- management, eg. the a. Problem- management, eg. the Department, Department, often does not control often does not control recruitmentrecruitment
b. Legislation sets the rules- merit system b. Legislation sets the rules- merit system with with civil service commission overseeing the civil service commission overseeing the processprocess
c. Civil Service Commission or Office of c. Civil Service Commission or Office of Personnel acts as an intermediaryPersonnel acts as an intermediary
THE PROBLEMTHE PROBLEM
Management of the public sector Management of the public sector organization is separated from the organization is separated from the major management functions-major management functions-
eg. promotion, firing, discipline, eg. promotion, firing, discipline, collective bargainingcollective bargaining
The Bottom LineThe Bottom Line
Government Has Government Has THETHE Monopoly of Monopoly of Power (Ultimately Life and Death)Power (Ultimately Life and Death)
Basic Principles?Basic Principles?
The Bureaucracy is an institution of The Bureaucracy is an institution of governmentgovernment
a. The public bureaucrat has greater a. The public bureaucrat has greater recourse to sanctions than the privaterecourse to sanctions than the private
b. Only partly true- the credit card b. Only partly true- the credit card company and the collection agencycompany and the collection agency
Origins of bureaucratic Origins of bureaucratic powerpower
a. Bureaucracy is largely autonomous, only a. Bureaucracy is largely autonomous, only 10% of actions controlled by politicos10% of actions controlled by politicos
b. Actions are seldom subjected to political b. Actions are seldom subjected to political or judicial reviewor judicial review
c. Problem of bureaucratic lethargy- resists c. Problem of bureaucratic lethargy- resists changechange
Lethargy (Dong Eun Kim)Lethargy (Dong Eun Kim)
Origins of bureaucratic Origins of bureaucratic power-2power-2
d. Bureaucracies are COMPLEX d. Bureaucracies are COMPLEX ORGANIZATIONS and are difficult to controlORGANIZATIONS and are difficult to control
e. Bureaucrats have the market cornered e. Bureaucrats have the market cornered on expertiseon expertise
f. Bureaucrats play "bureaucratic politics" f. Bureaucrats play "bureaucratic politics" behind the politicians' backsbehind the politicians' backs
Bureaucratic MethodBureaucratic Method
The political implications The political implications of role theory of role theory
ROLE SETS (Robert Merton)ROLE SETS (Robert Merton)
Role Conflict in the bureaucracyRole Conflict in the bureaucracy
Role vs. Status vs. IndividualsRole vs. Status vs. Individuals
Role Theory: Animal Role Theory: Animal Behavior?Behavior?
The bureaucrat can have a The bureaucrat can have a complex set of complex set of interpersonal relationships interpersonal relationships
1. Analyst and advocate
2. Planner
3. Managers and lobbyists
4. Professional and employee
5. Citizen
The Rights of the The Rights of the BureaucratBureaucrat
The role of Unions and strikes in the The role of Unions and strikes in the public servicepublic service
Restrictions on political activity, eg. Restrictions on political activity, eg. the Hatch Act in the U.S.the Hatch Act in the U.S.
Secrecy, Clearance and Whistle Secrecy, Clearance and Whistle BlowingBlowing
Bureaucratic Norms?Bureaucratic Norms?