Introduction to Public Affairs PIA 2000 The Structure

Introduction to Public Affairs PIA 2000

The Structure and Process of Bureaucracies- First Cut § Bureaucrats, Regulations and Political Institutions § Lobbyists, Networks and Pressures § Debates about Public Sector Reform

Prologue: An Overview of Public Sector Reform

A New Debate? A 1930 s Cartoon

Reform Epochs: § 16 th Century France: Separation of King from retainers. Creation of Bureaucracy § 18 th Century Prussia: Cameralism- Defined civil administrators in public and Corporate Sector § Nineteenth Century: British India and British Reforms: Selection by Examination and Interview § Late Nineteenth and Early Twentieth Century U. K. and U. S. : Civil Service Reform: Ending the Spoils § Last Part of the Twentieth Century: Structural Adjustment

Rembrandt's painting “The Mercantilists”

Bureaucracies, Politicians and Clients Overall Themes of the Next Several Weeks: 1. Characteristics of Bureaucracies 2. Explaining Bureaucratic Behavior 3. Clients: The comparative advantage of the "Iron Triangle" model (Executive Bureaucracy, Congress and Staff and Lobbyists). 4. Clients and Democracy: The Power of the Lobbyist 5. Corporatism as the Alternative Concept (Conspiracry? ) 6. Evaluating Reform

Two Views of Behavior

The Problem: § Inefficiency § Corruption § Interest Influence § Authoritarian

Lincoln and the Accusation of Patronage

Kenya Poster: A Reminder

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: 1940 s and 1950 s (Admin. Reform) § New Public Administration: Advocacy Reform and Affirmative Action § Structural Adjustment: Debt Management and Privatization. Internationalized Reform § 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, Ferrel 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

Peronism vs. Chile

Pluralist vs. Controlling § Power Elite- Class § Pluralist (Competitive)

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 John Q. Public Is there such a person?

Major themes in Comparative Public Administration. Administrative Structures and Society. I. An 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

Classical Liberalism

Classical Liberalism?

Partisanship, Democracy and Bureaucracy- A Reminder 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 II. Statist view of Society- Collectivist (Frances Fitz. Gerald- 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) d. Focus- Group Mobilization

Corporatism as the Alternative Concept. Groups and Leadership Francisco Franco

Mobilization of Working Class

The Power of the Group

Authoritarianism § Authoritarian systems. Structures absent to protect citizens from fused state and bureaucracy § Non-Constitutional Systems: Military Regimes and One Party States. Politicized bureaucracy § Rent Seeking, Nepotism and Corruption

Evaluating Reforms?

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 III. Elite vs. egalitarian views of public service. (A Reminder)- Interests within the State) a. Maximum Deferred Achievement (No -selection) pre b. Maximum Ascriptive Model (Class based) c. Progressive Equal Attrition Model Egalitarian- Professional- collectivist

The Process: Images of Recruitment

Political Structures and Public Management 1. Structure of Civil Service Systems: The role of Mandarins and political penetration into the civil service 2. Decayed and Transferred Institutions: (Kings and Colonies)- The creation of an organizational bourgeoisie (Irving Markovitz) 3. Corporatist Systems can be royalist, military, social (Spain, Argentina, Scandinavia)

The Myth: Classical Non. Partisanism § 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? 1. No significant differences between personnel in large private vs. public organizations 2. Differences in the structures within which the individual has to work 3. The bureaucracy is an institution of government

Government: Differences from the private sector. Difference in Product 4. Private- emphasis is on profit, economy and efficiency 5. Public- need to account for the political and social- not what is always efficient 6. 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 functionseg. 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: U. K.

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 6. Spouse and Parent

Bureaucratic Norms?

Theories of Behavior § Rational Behavior and Decision-Making § Standard Operating Behavior (SOPs) § Bureaucratic Politics- Turf and Control § Group Think

Graham Allison Kennedy Center, Harvard Born, March 23, 1940 Cuban Missle Crisis

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

Hatch Act 1833 -1896

Next Week’s Discussion § V. S. Naipaul, In a Free State § Robert Penn Warren, All the King’s Men § Daniel Okrent, Last Call § C. Wright Mills, The Power Elite § James Lehman, The Black Migration