Comparative Public Management and Policy

1. Comparative Public Management and Policy PIA 3090

2. The Main Event I. Golden Oldies: II. Literary Map: III. Grand Synthesis:

3. Bureaucracies, Politicians and Clients Overall Themes of the Week: • Prologue: An Overview of Public Sector Reform • Clients: The comparative advantage of the "Iron Triangle" model. • Clients and Democracy: Legislature-Executive-Lobbyist • Corporatism as the Alternative Concept • Evaluating Reform

4. Prologue: An Overview of Public Sector Reform

5. 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

6. Rembrandt's painting“The Mercantilists”

7. The Problem: • Inefficiency • Corruption • Interest Influence • Authoritarian

8. Kenya Poster

9. 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)

10. 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 Modern Reforms: U.S. Model

11. Clients: The Role of Groups

12. The Role of Groups • Reform Perspective • Extent of access to public sector • Iron Triangle • Problem of Illicit Access

13. The Iron Triangle and the Revolving Door

14. 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

15. LDCs • An absence of "clients" or Too many? • The Role of patronage, corruption and Crony capitalism. -Indonesia -Korea -West Africa -China -U.S.?

16. Crony Capitalism

17. 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?

18. Clients and Democracy

19. Major themes in Comparative Public Administration- Administrative Structures and Society- • 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

20. 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

21. Liberalism or Not Liberalism

22. 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)

23. Corporatism as the Alternative Concept

25. The Power of the Group

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

27. Evaluating Reform

28. 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

29. Control: How to vs. Should one?

30. Political Structures and Public Management • 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

31. 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)

32. 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?

33. 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

34. Difference 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 Government: Differences from the private sector-

36. 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

37. THE PROBLEM Management of the public sector organization is separated from the major management functions- eg. promotion, firing, discipline, collective bargaining

38. Government Has THEMonopoly of Power (Ultimately Life and Death) The Bottom Line

39. 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

40. 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

41. Lethargy (Dong Eun Kim)

42. 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

43. Bureaucratic Method

44. The political implications of role theory • ROLE SETS (Robert Merton) • Role Conflict in the bureaucracy • Role vs. Status vs. Individuals

45. 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 Role Theory: Animal Behavior?

46. 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

47. Bureaucratic Norms?