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?