Elective Public Management – Week 1 Development of Public Management: Bureaucracy
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Building Competence. Crossing Borders.
Elective Public Management – Week 1
Development of Public Management: Bureaucracy
Andreas BergmannInstitute of Public Management
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week2, 20.2.008 2
What is your understanding of „bureaucracy“ or „bureaucratic“?
Where or when do you experience bureaucracy?
• In a positive way
• In a negative way
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week2, 20.2.008 3
Development of Public Management/ Bureaucracy
Overview week 2
Function of Public Activities
Before Bureaucracy
Bureaucracy by Max Weber
Appraisal of Bureaucracy
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Function of Public Activities (1)
There are problems which cannot be resolved individually.
Privatesector
Non-profitorganizations
Publicsector
InfrastructureEconomic system
LegitimacyTaxation
GuaranteesFunding
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Function of Public Activities (2)
Government intervention
• Individuals/corporations are limited by the government (i.e. police, taxes
Government provision of services
• Individuals/corporations are provided with services by the government
(i.e. schools, hospitals, galleries)
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Function of Public Activities (3)
1. Legislative power = …
2. Judicial power = …
3. Executive power = …
Public administration is part of the executive power, as long as no special administrative entities supporting legislative power (i.e. parliament services) or judicial power (i.e. court administration) are concerned.
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Function of Public Activities (4)
Rule of Law: Civil rights
Predictability• Government action needs to be predictable.
Equity
• Equal treatment under equal circumstances.
Judicial control
• Government action can be referred to an independant court.
Vgl. Schedler S. 8
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Function of Public Activities (4)
Rule of Law: Implications for Public Administration
No execitive entity is above law.
If law requires activity, administration has no discretion.
Administrative action requires a legal basis.
Law is changed in the same procedure it has been enacted.
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Before Bureaucracy
Before French Revolution: Absolutism
• Elements:
- Centralism
- Civil servants are employed by the throne
- All three powers are united in the throne
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Louis XIV, um 1700
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Before Bureaucracy
French Revolution: Division of power, but administration stays the same
• Aristocratic civil service
- Personal nomination
- Inheritance of positions
• In Switzerland mainly Canton BE (inkl. occupied territories VD, AG, JU) and BS
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Before Bureaucracy
However: Separation of intervention and service provision
Intervention: Secular, by public administration
• E.g. armed forces, police, prison, customs, taxation
Public services: Religious, by the church
• E.g. schools, hospitals, homes
In Roman Catholic areas still observable
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Bureaucracy as defined by Max Weber
Max Weber (*1864 in Erfurt, +1920 in München)
Lawyer, economist and sociologist
Most important publication: Die protestantische Ethik und der ‚Geist‘ des Kapitalismus (1904/05)
But also founder bureaucracy theory (in: „Wirtschaft und Gesellschaft“, 1922)
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Bureaucracy as defined by Max Weber
Bureaucracy theory
One of the three classical organizational theories (the others are
„Structural Approach“ by Taylor/Fayol und „Human-Relations-Approach“ by
Mayo/Rothlisberger)
Bureaucracy: literally rule of the office
For Max Weber: „Rationalization“
• Rationale Form
• of legal power
Interpretationen to some extent controversial
Bureaucracy = system of related entities
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Bureaucracy as defined by Max Weber
Bureaucracy theory (2)
Two fundamental priciples:
1. Rule based power
2. Hierarchy
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Bureaucracy as defined by Max Weber
Typical elements of a Bureaucracy
Rigorous division of labor
Authority limited to clearly defined scope
Knowlegde & competence appointment functional authority
Hierarchy
Defined processes
Emphasize on documentation/written communication
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Bureaucracy as defined by Max Weber
Typical elements of a Bureaucracy
Compensation of employees only based on position
Unpersonal communication
Separation of administrative and personal possesion
Rationale discipline
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Abb.: Apparatschiks
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Bureaucracy as defined by Max Weber
Typical behaviour of civil servants:
Fullfil their duty obligations independently based on the law
Comply with hierarchy
As little communication with politicians as possible
Refuse to obey orders which are not inaccordance with the law
Dismissal only possible if there is a breach of law
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Bureaucracy as defined by Max Weber
Input-Control (following Max Weber‘s principles)
Determination of INPUTS (de facto in the Budget)
plus
Compliance with typical elements of bureaucracy
=
Optimum OUTPUT
Einflusspolitische Führung
Periodicallyrecurring
Non-recurring
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Input- Output Control
Resources Production Demand (Market)
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Appraisal of Bureaucracy : Advantages
„Checks & Balances“
Rigorous structures
Transparency (unless structure is )
Limitation of power
Rule of law
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Public Administration
Rapid change• Culture• Globalization• Technology (Internet!)
Increased complexity• Simultaneous processes• Diversity of demand• Increased expectations of citizens• Increased expectations of others• Increased expectations of financial
markets
Scarce Resources• Scarce financial resources• Scarcity of skilled employees• Public sector debt
Appraisal of Bureaucracy : Critical issues
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Bureaucracy leads to inflexibility
No adaptation to external influences
Red tape („Dienst nach Vorschrift“) is the role model
Official channels
• Slows processed down
• filters informationen
No gradual cutbacks
Appraisal of Bureaucracy : Critical issues
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Disadvantages of input control
Incremental budgeting based on earlier periods
Love of details
Little flexiblity
Dissipation of funds towards the end of the period
Not made for large service providers
Appraisal of Bureaucracy : Critical issues
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Appraisal of Bureaucracy : Critical issues
Lack of customer orientation
Arrogant (but legally correct) behaviour of civil servants
Customer needs get neglected
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Appraisal of Bureaucracy : Current situation
Importance nowadays
Where there is no NPM: still the most important organizations model
Where NPM was adopted: some elements persist
• …
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References
Literature• SCHEDLER/PROELLER, 3-36
•Abraham, M.:Vorlesung Org_Theorie, www.lrz-muenchen.de/.../ws03_04/abraham_orga/vorlesung_orgtheorie_muenchen_WS02_03_folien_kap3_v20_zweis.pdf
•Online-Verwaltungslexikon olev.de•Payer, M., Internationale Kommunikationskulturen, www.payer.de/kommunikationskulturen/kultur081.htm