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: • The comparative advantage of the "Iron Triangle" model. • Legislature-Executive-Lobbyist • Corporatism as the Alternative

4. Three Models 1. Japan- Johnson's perspective (State Centric Planning and one way movement) 2. Europe- (Orwell, Greene, Heady (Pluralism vs. Corporatism) 3. U.S.- (Truman vs. C. Wright Mills) 4. Latin America: Military Corporatism and Patron Client Relationships

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

6. 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 or Ideological?

7. Major themes in Comparative Public Administration- Administrative Structures and Society- 1. 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

8. 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)

9. Political Structures and Public Management 1. Issues of Governance, Interests and Political Development 2. The Administrative State Concept: Weak Political controls and a strong bureaucratic elite

10. 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

11. 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)

12. 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 and bureaucratic authority

13. Authoritarianism • 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

14. 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?

15. 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

16. Government: Differences from the private sector- 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

17. Recruitment 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

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

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

20. 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

21. 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

22. 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

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

24. Role Theory • 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

25. 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