Download Class Notes 9

Comparative Public
Management and
Policy
PIA 3090
The Main Event
I.
Golden Oldies:
II. Literary Map:
III. Grand Synthesis:
Bureaucracies, Politicians
and Clients
Overall Themes of the Week:
1.
Prologue: An Overview of Public Sector Reform
2.
Clients: The comparative advantage of the "Iron Triangle"
model.
3.
Clients and Democracy: Legislature-Executive-Lobbyist
4.
Corporatism as the Alternative Concept
5.
Evaluating Reform
Prologue: An
Overview of Public
Sector Reform
Reform Epochs:
 16th Century France: Separation of King from
retainers. Creation of Bureaucracy
 18th Century Prussia: Cameralism- Defined civil
administrators in public and Corporate Sector
 Nineteenth Century: British India and British
Reforms: Selection by Examination and
Interview
Rembrandt's painting
“The Mercantilists”
The Problem:
 Inefficiency
 Corruption
 Interest Influence
 Authoritarian
Kenya Poster
How to Reform:
 Organizational and Administrative Reform
(Motivation and Communication)
 Civil Service Reform (Recruitment)
 Fiscal Reform (Spending and Ownership)
 Policy Reform (Law and Order vs.
Development)
Modern Reforms: U.S.
Model

U.S. Civil Service Reform:
1883: End of Spoils

Hoover Commissions: 1940s
and 1950s (Admin. Reform)

New Public Administration:
Advocacy Reform and
Affirmative Action

Structural Adjustment: Debt
Management and Privatization

New Public Management:
Customers and Clients
Clients: The Role of
Groups
The Role of Groups
 Reform Perspective
 Extent of access to public sector
 Iron Triangle
 Problem of Illicit Access
The Iron Triangle and the
Revolving Door
Group Influences-Five
Models:
1. Japan/Asia- Johnson's perspective (State Centric
Planning and one way movement)
2. Europe- (Orwell, Greene, Heady (Representation
vs. Corporatism)
3. U.S.- Pluralism vs. Elite Theory (Truman vs. C.
Wright Mills)
4. Latin America: Military Corporatism and Patron
Client Relationships
5. Africa: Crony Capitalism
LDCs
 An absence of "clients" or Too many?
 The Role of patronage, corruption and
Crony capitalism.
-Indonesia
-Korea
-West Africa
-China
-U.S.?
Crony Capitalism
ISSUE:
 Public Interest vs. private interests
(and the bureaucracy as an interest
group)
 Question: Is there such a thing as a
Public Interest Group? (PIG)
 NGOs: Public, private or Ideological?
Clients and
Democracy
Major themes in Comparative
Public AdministrationAdministrative Structures and Society1.
Individualist view of state-society relationships
a. Common law view of society;
b. Anglo-Saxon model: law and order as
basic function of government;
c. Society made up of individuals- liberalism
Partisanship, Democracy
and Bureaucracy
a. Fused vs. Separation of Powers
“Yes Minister” (Britain)
b. Cabinet Government vs.
Presidential Systems- Collective
Responsibility (U.S. Latin America
and France- Mixed)
c. Legislatures- Committee systems,
Groups and bureaucratic authority
Liberalism or Not
Liberalism
Administrative Structures
and Society
2. Statist view of Society- Collectivist (Frances
FitzGerald- Fire in the Lake on Vietnam)- Three
Views
a. Idea of an active, creative state,
development oriented (Keynes)
b. Marxist-Leninist model- communitarian
c. Corporatist idea of society as groups- civil
service as a group (Western Europe)
Corporatism as the
Alternative Concept
The Power of the Group
Authoritarianism
 Authoritarian systemsStructures to protect
citizens from fused state
and bureaucracy
 Non-Constitutional
Systems: Military Regimes
and One Party StatesPoliticized bureaucracy
 Rent Seeking, Nepotism
and Corruption
Evaluating Reform
Political Structures and
Public Management Themes
1. Issues of Governance, Interests
and Political Development
2. The Administrative State Concept:
Weak Political controls and a strong
bureaucratic elite
Control: How to vs. Should
one?
Political Structures and
Public Management
3. Elite vs. egalitarian views of public service. (A
Reminder)- Interests within the State)
a. Maximum Deferred Achievement (No
pre-selection)
b. Maximum Ascriptive Model (Class based)
c. Progressive Equal Attrition Model
Egalitarian- Professional- collectivist
Political Structures and
Public Management
4. Structure of Civil Service Systems: The role of
Mandarins and political penetration into the civil
service
5. Decayed and Transferred Institutions: (Kings
and Colonies)- The creation of an organizational
bourgeoisie (Irving Markovitz)
6. Corporatist Systems can be royalist, military,
social (Spain, Argentina, Scandinavia)
The Myth: Classical NonPartisanism
 The Politics/Administration Dichotomy:
The Role of Non-Partisan Movements and
Generic Management
 POSDECORB (Luther Gulick)
 (Planning, Organizing, Staffing, Directing,
Coordinating, Reporting, and Budgeting)
 How Neutral?
Differences between the public and
the private sector- How much, or
how little?
a. No significant differences between
personnel in large private vs. public
organizations
b. Differences in the structures within
which the individual has to work
c. The bureaucracy is an institution of
government
Government: Differences
from the private sectorDifference in Product
a. Private- emphasis is on profit, economy
and efficiency
b. Public- need to account for the political
and social- not what is always efficient
c. Issue- motivation or its absence in the
public sector
Recruitment: The Only Game
in Town (for Reform)
KEY: The recruitment of professionals and
specialists contradicts with the issue of political
control
a. Problem- management, eg. the Department,
often does not control recruitment
b. Legislation sets the rules- merit system with
civil service commission overseeing the
process
c. Civil Service Commission or Office of
Personnel acts as an intermediary
THE PROBLEM
Management of the public sector
organization is separated from the
major management functions-
eg. promotion, firing, discipline,
collective bargaining
The Bottom Line
Government Has THE Monopoly of
Power (Ultimately Life and Death)
Basic Principles?
 The Bureaucracy is an institution of
government
a. The public bureaucrat has greater
recourse to sanctions than the private
b. Only partly true- the credit card
company and the collection agency
Origins of bureaucratic
power
a. Bureaucracy is largely autonomous, only
10% of actions controlled by politicos
b. Actions are seldom subjected to political
or judicial review
c. Problem of bureaucratic lethargy- resists
change
Lethargy (Dong Eun Kim)
Origins of bureaucratic
power-2
d. Bureaucracies are COMPLEX
ORGANIZATIONS and are difficult to control
e. Bureaucrats have the market cornered
on expertise
f. Bureaucrats play "bureaucratic politics"
behind the politicians' backs
Bureaucratic Method
The political implications
of role theory
 ROLE SETS (Robert Merton)
 Role Conflict in the bureaucracy
 Role vs. Status vs. Individuals
Role Theory: Animal
Behavior?
 The bureaucrat can have a
complex set of
interpersonal relationships
1. Analyst and advocate
2. Planner
3. Managers and lobbyists
4. Professional and
employee
5. Citizen
The Rights of the
Bureaucrat
 The role of Unions and strikes in the
public service
 Restrictions on political activity, eg.
the Hatch Act in the U.S.
 Secrecy, Clearance and Whistle
Blowing
Bureaucratic Norms?