Development Administration chapter 7 (UNPAS 2012)

Prof. Ginandjar Kartasasmita

Program Doktor Bidang Ilmu SosialUniversitas Pasundan

Bandung2012

� THERE IS AMPLE EVIDENCE OF DYSFUNCTIONAL BUREAUCRACIES AVIDLY DEVOURING SCARCE RESOURCES BUT FAILING TO PRODUCE ANTICIPATED OUTCOMES.

� IT IS NOT DIFFICULT TO FIND POLICIES THAT SERVE TO KEEP ILLEGITIMATE GOVERNMENTS IN OFFICE RATHER THAN ATTENDING TO THE BUSINESS OF RATHER THAN ATTENDING TO THE BUSINESS OF STRENGTHENING THE ECONOMY AND IMPROVING WELFARE FOR THE POOR.

� THERE HAS BEEN CONSIDERABLE CRITICISM OF OFFICIAL AID AGENCIES THAT GIVE OR LEND MONEY FOR PROJECTS THAT BRING LIMITED GAINS TO TARGET POPULATIONS.

www.ginandjar.com 2S3-Unpas_2012

� THE DECADES SINCE THE END OF WORLD WAR TWO HAVE WITNESSED AN UNRIVALLED DRIVE FOR ECONOMIC AND SOCIAL DEVELOPMENT BY THE MAJORITY OF THE WORLD'S NATIONS.

� HOWEVER, THE ACHIEVEMENT OF DEVELOPMENT GOALS IN A SHORT TIME HAS PROVED ELUSIVE FOR ALL EXCEPT A SMALL NUMBER OF 'TIGERS' IN EAST ASIA. EXCEPT A SMALL NUMBER OF 'TIGERS' IN EAST ASIA. MANY PROCESSES AND FACTORS HAVE BEEN IDENTIFIED AS CONTRIBUTING TO THE DIFFERING LEVELS OF ACHIEVEMENT, AND PROMINENT AMONGST THESE HAS BEEN THE ARGUMENT THAT PUBLIC SECTOR ORGANIZATIONS HAVE OFTEN PERFORMED POORLY.


FRED RIGGS FERREL HEADY OTHERS

OVERLAP IMMITATIONS RATHER THAN IDIGENOUS

OVERSTAFFED PUBLIC ORGANIZATION

HETEROGENITY DEFICIENCY OF SKILLS UNDERPAID PUBLIC EMPLOYESS

FORMALISM NONPRODUCTION-ORIENTED LOW PRODUCTIVITY

COMMON ATTRIBUTES OF ADMINISTRATIVE SYSTEMS

OF DEVELOPING COUNTRIES

FORMALISM NONPRODUCTION-ORIENTED BUREAUCRACIES

LOW PRODUCTIVITY

DIFFUSSION FORMALISM LACK OF INNOVATIVE AND SKILLED PUBLIC MANAGERS

PARTICULARISM AUTONOMY EXCESSIVELY CENTRALIZED DECISION MAKING

ASCRIPTION CORRUPTION THAT REGULARLY IMPEDES REFORM

ADMINISTRATIVE STRUCTURES THAT MIRROR THE POLITICAL CONTEX


THE MAIN THEMES OF ADMINISTRATIVE

DEVELOPMENT

� FIRST, THE ORGANIZATIONAL ASPECTS OF DEVELOPMENT CANNOT BE REDUCED TO A TECHNICAL FIX.

� THUS, ADMINISTRATIVE DEVELOPMENT AND � THUS, ADMINISTRATIVE DEVELOPMENT AND INNOVATION ARE NOT SIMPLY A MATTER OF INSTALLING SOME PIECE OF MANAGERIAL TECHNOLOGY WHICH HAS PROVED EFFECTIVE ELSEWHERE.

� MANAGEMENT SYSTEMS, ADMINISTRATIVE TECHNIQUES AND ORGANIZATIONAL DESIGNS ARE NOT NEUTRAL VALUE-FREE PHENOMENA.


� THE SECOND THEME CONCERNS THE IMPORTANCE OF

ORGANIZATIONAL ENVIRONMENTS, THAT ENVELOPE OF

FACTORS AND FORCES IN WHICH ORGANIZATIONS OPERATE.

� ORGANIZATIONS ARE NOT CLOSED TECHNICAL SYSTEMS.

THEY ARE NECESSARILY INVOLVED IN MULTIPLE

RELATIONSHIPS WITH OTHER ORGANIZATIONS AND

INDIVIDUALS. COMPLEX WEBS OF RELATIONSHIPS ARE THUS INDIVIDUALS. COMPLEX WEBS OF RELATIONSHIPS ARE THUS

WOVEN AND HAVE PROFOUND EFFECTS ON THE OPERATION

OF ORGANIZATIONS.

� NATIONAL CULTURE MAY BE A KEY DETERMINANT OF THE

WAY IN WHICH ACTIVITIES ARE CONDUCTED AND MAY

INFLUENCE OPERATIONAL NORMS AND PRACTICES AS

MUCH AS THE PUBLIC SERVICE MANUAL OF PROCEDURES.


� THE THIRD THEME EMPHASIZES ONE ASPECT OF THE

ADMINISTRATIVE ENVIRONMENT, THAT IS THE IMPORTANCE

OF POLITICAL CONSIDERATIONS IN ADMINISTRATIVE ANALYSIS

AND PRACTICE.

� ORGANIZATIONAL ACTION TAKES PLACE IN POLITICAL � ORGANIZATIONAL ACTION TAKES PLACE IN POLITICAL

CONTEXTS. POWER AND AUTHORITY PERMEATE

RELATION-SHIPS BETWEEN ORGANIZATIONAL MEMBERS AND

BETWEEN THESE PERSONS AND THOSE IN THE EXTERNAL

ENVIRONMENT.


� THE FOURTH THEME FLOWS FROM THE ORGANIZATIONAL

ENVIRONMENTAL ISSUES. IT IS THAT ORGANIZATIONAL

IMPROVEMENT IS NOT A PANACEA FOR DEVELOPMENT.

DEVELOPMENT IS MULTI-FACETED AND SUCCESS OR FAILURE ARE

BASED ON MORE THAN ORGANIZATIONAL DESIGN, ADMINISTRATIVE

REFORM OR HUMAN RESOURCE MANAGEMENT.

� SUCH ITEMS HAVE A STRONG BEARING ON WHETHER

DEVELOPMENTAL PROGRESS WILL OCCUR BUT THEY ARE NEVER THE DEVELOPMENTAL PROGRESS WILL OCCUR BUT THEY ARE NEVER THE

SOLE DETERMINANTS, ADMINISTRATION WORKS ONLY IN

CONJUNCTION WITH OTHER FACTORS OF CHANGE.

� FURTHERMORE, PUBLIC SECTOR ORGANIZATIONS CAN BE UTILIZED

TO OPPRESS OR TO DEFEND THE PRIVILEGES OF CERTAIN CLASSES

AND GROUPS IN SOCIETY. THEY ARE NOT INNATELY BENIGN BUT

MUST BE DIRECTED TOWARDS THE ATTAINMENT OF

DEVELOPMENTAL GOALS.


ADMINISTRATIVE


DEVELOPMENT

FAILURES

INAPPROPRIATE

POLICY CHOICES

POOR STATE

INSTITUTIONS


BUREAUCRACY

� BUREAUCRACY EMERGED AS A DOMINANT FEATURE OF THE CONTEMPORARY WORLD.

� VIRTUALLY EVERYWHERE ONE LOOKED IN BOTH DEVELOPED AND DEVELOPING NATIONS, ECONOMIC, SOCIAL, AND POLITICAL LIFE WERE EXTENSIVELY AND SOCIAL, AND POLITICAL LIFE WERE EXTENSIVELY AND EVER INCREASINGLY INFLUENCED BY BUREAUCRATIC ORGANIZATIONS.

� BUREAUCRACY, WHILE IT IS OFTEN USED AS A GENERAL INVECTIVE TO REFER TO ANY ORGANIZATION THAT IS PERCEIVED TO BE INEFFICIENT, IS MORE PROPERLY USED TO REFER TO A SPECIFIC SET OF STRUCTURAL ARRANGEMENTS.


THE BASIC CONCEPTS

� SPECIALIZED JURISDICTIONS, OFFICES, AND TASKS, THAT IS, A DIVISION OF LABOR AND AUTHORITY REGARDING THE ACHIEVEMENT OF THE REGARDING THE ACHIEVEMENT OF THE ORGANIZATION’S GOALS.

�A HIERARCHY OF AUTHORITY TO COORDINATE THE ACTIVITIES OF THE SPECIALIZED OFFICES AND INTEGRATE THEIR JURISDICTIONAL AUTHORITY.


MINISTER

ASSISTANT MINISTER

VICE/DEPUTY MINISTER

MINISTER

INSPECTOR GENERAL

INSPECTOR

SECRETARY GENERAL

BUREAU

DIRECTORGENERAL

REGIONALOFFICE

WORKING UNIT

DIRECTOR

DIVISIONSUB-DIRECTORATE


�BUREAUCRATIC STRUCTURE TENDS TO BE PERMANENT. IT REMAINS INTACT REGARDLESS OF THE FLOW OF MEMBERS IN AND OUT OF IT. SOCIETY BECOMES DEPENDENT ON THE BUREAUCRACY’S FUNCTIONING TO THE EXTENT THAT CHAOS RESULTS IF IT IS DESTROYED.THAT CHAOS RESULTS IF IT IS DESTROYED.

�BY IMPLICATION, BUREAUCRACIES ARE LARGE ORGANIZATIONS

(WEBER, 1947)


IDEAL TYPE BUREAUCRACY

�CONTEMPORARY THINKING ALONG THESE LINES BEGINS WITH THE WORK OF THE BRILLIANT GERMAN SOCIOLOGIST MAX WEBER.

�HIS ANALYSIS OF BUREAUCRACY, FIRST PUBLISHED IN 1922 AFTER HIS DEATH, IS STILL THE MOST INFLUENTIAL STATEMENT –THE POINT OF DEPARTURE INFLUENTIAL STATEMENT –THE POINT OF DEPARTURE FOR ALL FURTHER ANALYSES– ON THE SUBJECT.

�WEBER USED AN "IDEAL-TYPE" APPROACH TO EXTRAPOLATE THE CENTRAL CORE OF FEATURES CHARACTERISTIC OF THE MOST FULLY DEVELOPED BUREAUCRATIC FORM OF ORGANIZATION.


WEBER’S IDEAL TYPE BUREAUCRACY

1. BUREAUCRACY IS BASED UPON RULES WHICH ARE ACCEPTED (IN BOARD TERMS) BY THE MEMBERS OF THE ORGANIZATION.

2. BUREAUCRACY IS RELATIVELY COUNTINUOUS IN ITS OPERATION.OPERATION.

3. THE SPHERES OF COMPETENCE OF BUREAUCRATIC ADMINISTRATION ARE SPECIFIED.

4. BUREAUCRACY IS BASED UPON THE IDEA OF HIERARCHY.

5. THE OFFICIALS ARE TRAINED SO THAT THE STRUCTURES CAN FUNCTION IN THE WAYS INTENDED.


6. OFFICIALS IN BUREAUCRACY ARE NOT THEMSELVES OWNERS OF THE MEANS OF PRODUCTIONS.

7. OFFICIALS DO NOT ‘OWN’ THEIR JOBS, THAT IS, THE JOB ITSELF BELONGS TO THE ORGANIZATION, NOT TO THE INDIVIDUAL WHO HAPPENS TO BE OCCUPYING IT.

8. THE SUCCESSFUL AND COUNTINUING OPERATION OF 8. THE SUCCESSFUL AND COUNTINUING OPERATION OF BUREAUCRACY DEPENDS TO A LARGE EXTENT UPON WRITTEN RECORD.


� THE BUREAUCRATIC STRUCTURES OF THE STATE CONSTITUTE THE INSTITUTIONAL STATE CONSTITUTE THE INSTITUTIONAL ENVIRONMENT IN WHICH AND THROUGH WHICH PUBLIC DEVELOPMENT MANAGERS FUNCTION.


DIFFERENTIATED PUBLIC

� THE NORMAL TENDENCY IN BUREAUCRACY IS TO REGARD ITS CLIENTELE AS AN UNDIFFERENTIATED PUBLIC TO WHOM UNDIFFERENTIATED PUBLIC TO WHOM REGULATIONS ARE TO BE APPLIED AND SERVICES DELIVERED UNIFORMLY, THEREFORE OBJECTIVELY AND EQUITABLY.


� THE THEME OF “REPRESENTATIVE BUREAUCRACY” DESCRIBES BUREAUCRATS AS A KIND OF RANDOM SAMPLE OF THE POLITY, DESERVING OF THE SAME SAMPLE OF THE POLITY, DESERVING OF THE SAME TREATMENT ACCORDED OTHER CITIZENS.

� PUCLIC ADMINISTRATION ARE EXPECTED TO HELP RESTRAIN ETHNIC DISCRIMINATION WITHIN THEIR OWN RANKS IN ORDER TO REDUCE COMMUNAL TENSION.


� BUREAUCRATS ARE RARELY SYMPATHETIC FIGURES EVEN WHEN THEY ARE HELPING PEOPLE PARTICIPATE IN BENEFITS TO WHICH PEOPLE PARTICIPATE IN BENEFITS TO WHICH THEIR CITIZENSHIP ENTITLES THEM.

(JOHN D. MONTGOMERY, 1988)


EMPOWERMENT BUREAUCRATIC EXPLOITATIONEMPOWERMENT BUREAUCRATIC POPULISM

EXPLOITATION


� THE THEORY OF BUREAUCRATIC POPULISMDEPENDS UPON THE ASSUMPTION THAT GOVERNMENTS CAN MOTIVATE THE PEOPLE TO PRODUCE A PUBLIC GOOD THAT PROVIDES TO PRODUCE A PUBLIC GOOD THAT PROVIDES OPPORTUNITIES FOR THEM TO GENERATE PRIVATE GOODS


� AS SOCIETY BECAME MORE COMPLEX AND ORGANIZATIONS GREW LARGER, ORGANIZATIONS (BOTH PRIVATE AND PUBLIC) INCREASED THEIR DIVISION OF LABOR INTO MORE AND SMALLER DIVISION OF LABOR INTO MORE AND SMALLER SPECIALIZED UNITS.

� LARGER INSTITUTIONS BEGAN TO DEFER TO THE JUDGMENTS OF THESE UNITS, WHICH SHOWS THAT A MAJOR FOUNDATION OF BUREAUCRATIC POWER IS EXPERTISEEXPERTISEEXPERTISEEXPERTISE, OR SPECIALIZED KNOWLEDGESPECIALIZED KNOWLEDGESPECIALIZED KNOWLEDGESPECIALIZED KNOWLEDGE.


� DEVELOPMENT ADMINISTRATION LARGELY REMAINS BURDENED BY A COMBINATION OF INHERITED STRUCTURES AND BEHAVIORS AND DEEPLY INTERNALIZED LOCAL CULTURAL PATTERNS.

� UNABLE TO ATTAIN A TIMELY CORRECTION OF ITS � UNABLE TO ATTAIN A TIMELY CORRECTION OF ITS DEFICIENCIES OR TO LEARN FROM ITS FAILURES.

� THIS COMBINATION OF LEGACIES HAS HAD THE EFFECT OF IMPEDING PERFORMANCE AND WASTING BADLY NEEDED INSTITUTIONAL ENERGIES ON OTHER THAN PRODUCTIVE ENDEAVORS TO ACCOMPLISH DEVELOPMENTAL MANDATES.


� ALL ORGANIZATIONS OPERATE WITH IMPERFECTION; ALL ARE INFECTED WITH BUREAUPATHOLOGIES.

� THIS DOES NOT STOP THEM PERFORMING WELL, BUT IF LEFT UNTREATED THE BUREAUPATHOLOGIES WILL SPREAD AND INTENSIFY AND EVENTUALLY WILL SPREAD AND INTENSIFY AND EVENTUALLY IMPEDE PERFORMANCE NOTICEABLY.


� TENDENCY TO MAINTAIN AND ENLARGE POWER AND CONTROL


� PUBLIC ADMINISTRATION AS BOTH PROFESION AND

SCIENTIFIC STUDY FROM THE BEGINNING HAS BEEN

VERY MUCH CONCERNED WITH THE PROBLEMS OF VERY MUCH CONCERNED WITH THE PROBLEMS OF

CORRUPTION OR ABUSE OF POWER.


� A CORRUPTED BUREAUCRACY, BY DEFITION, IS ONE

THAT, DOES NOT DO WHAT IT IS SUPPPOSED TO, SINCE

ILLEGAL PAYMENTS TO OFFICIALS ARE PRESSUMABLY

NOT MADE UNLESS THOSE WHO RECEIVE PAYMENT

CAN AND DO CONTRAVENE THE INTENT OF THE LAWS CAN AND DO CONTRAVENE THE INTENT OF THE LAWS

THEY ARE SUPPOSED TO APPLY. ALTHOUGH FORMALLY

SALARIED, BUREAUCRATS IN SUCH QUASI-SALARY

SYSTEMS INDULGE IN SELF-ENRICHMENT ON A LARGE

SCALE (RIGGS,1995).


Authority

-Control

-Check and balance

Accountable to

Public Agency

ExcecutiveLegislative

People/Public/Voters

control

Election


ACCOUNTABILITYACCOUNTABILITYACCOUNTABILITYACCOUNTABILITY

� ACCOUNTABILITY IS THE DEGREE TO WHICH A PERSON MUST ANSWER TO SOME HIGHER AUTHORITY FOR ACTIONS IN THE LARGER SOCIETY OR IN THE AGENCY.

� ELECTED PUBLIC OFFICIALS ARE ACCOUNTABLE TO � ELECTED PUBLIC OFFICIALS ARE ACCOUNTABLE TO VOTERS. PUBLIC AGENCY MANAGERS ARE ACCOUNTABLE TO ELECTED EXECUTIVES AND LEGISLATURES.

� AGENCY LEADERS ARE HELD ACCOUNTABLE TO THE POLITICAL CULTURE OF SOCIETY, WHICH HOLDS GENERAL VALUES AND IDEAS OF DEMOCRACY AND PUBLIC MORALITY.


ETHICSETHICSETHICSETHICS

� ETHICSETHICSETHICSETHICS CONCERN WITH WHAT IS RIGHT AND WHAT IS WRONG.

(FREDERICKSON, 1994)

� ETHICSETHICSETHICSETHICS CAN BE CONSIDERED A FORM OF SELF-ACCOUNTABILITY, OR AN “INNER CHECK” ON PUBLIC ADMINISTRATORS CONDUCT.

(ROOSENBLOOM, KRAVCHUCK, 2005)


STANDARDS AND NORMSSTANDARDS AND NORMSSTANDARDS AND NORMSSTANDARDS AND NORMS

� STANDARDS AND NORMS ARE DEFINED AS PRINCIPLES OF RIGHT ACTION BINDING UPON THE MEMBERS OF A GROUP AND SERVING TO GUIDE, CONTROL, OR REGULATE PROPER AND ACCEPTABLE BEHAVIOR. BEHAVIOR.

� STANDARDS AND NORMS ARE THE CODIFICATION OF GROUP, ORGANIZATIONAL, COMMUNITY, OR GOVERNMENTAL VALUES, LAWS, REGULATIONS, CODES OF ETHICS.

� RULES ARE TYPICAL OF STANDARDS AND NORMS.

(FREDERICKSON, 1994)


ADMINISTRATIVE ETHICS

� ADMINISTRATIVE ETHICS INVOLVES THE APPLICATION OF MORAL PRINCIPLES TO THE CONDUCT OF OFFICIALS IN ORGANIZATIONS.CONDUCT OF OFFICIALS IN ORGANIZATIONS.

� BROADLY SPEAKING, MORAL PRINCIPLES SPECIFY 1) THE RIGHTS AND DUTIES THAT INDIVIDUALS SHOULD RESPECT WHEN THEY ACT IN WAYS THAT SERIOUSLY AFFECT THE WELL-BEING OF OTHER INDIVIDUALS AND SOCIETY; AND

2) THE CONDITIONS THAT COLLECTIVE PRACTICES AND POLICIES SHOULD SATISFY WHEN THEY SIMILARLY AFFECT THE WELL-BEING OF INDIVIDUALS AND SOCIETY.

(DENNIS THOMPSON, 1985)


FOUR LEVELS OF ETHICS

� IN PUBLIC ADMINISTRATION THERE IS A HIERARCHY OF LEVELS OF ETHICS, EACH OF WHICH HAS ITS OWN SET OF RESPONSIBILITIES. OWN SET OF RESPONSIBILITIES. 1) PERSONAL MORALITY—THE BASIC SENSE OF RIGHT AND

WRONG. THIS IS A FUNCTION OF OUR PAST AND IS DEPENDENT ON FACTORS SUCH AS PARENTAL INFLUENCES, RELIGIOUS BELIEFS, CULTURAL AND SOCIAL MORES, AND ONE'S OWN PERSONAL EXPERIENCES.


2) PROFESSIONAL ETHICS. PUBLIC ADMINISTRATORS

INCREASINGLY RECOGNIZE A SET OF PROFESSIONAL NORMS

AND RULES THAT OBLIGATE THEM TO ACT IN CERTAIN

"PROFESSIONAL" WAYS. OCCUPATIONS SUCH AS LAW AND

MEDICINE, WHILE OPERATING WITHIN PUBLIC MEDICINE, WHILE OPERATING WITHIN PUBLIC

ADMINISTRATION, ALSO HAVE THEIR OWN INDEPENDENT

PROFESSIONAL CODES.


3) ORGANIZATIONAL ETHICS. EVERY ORGANIZATION HAS AN

ENVIRONMENT OR CULTURE THAT INCLUDES BOTH FORMAL

AND INFORMAL RULES OF ETHICAL CONDUCT. PUBLIC

ORGANIZATIONS TYPICALLY HAVE MANY SUCH RULES. PUBLIC

LAWS, EXECUTIVE ORDERS, AND AGENCY RULES AND LAWS, EXECUTIVE ORDERS, AND AGENCY RULES AND

REGULATIONS ALL CAN BE TAKEN AS FORMAL

ORGANIZATIONAL NORMS FOR ETHICAL BEHAVIOR.


4) SOCIAL ETHICS. THE REQUIREMENTS OF SOCIAL ETHICS

OBLIGE MEMBERS OF A GIVEN SOCIETY TO ACT IN WAYS THAT

BOTH PROTECT INDIVIDUALS AND FURTHER THE PROGRESS

OF THE GROUP AS A WHOLE. SOCIAL ETHICS ARE FORMAL TO

THE EXTENT THAT THEY CAN BE FOUND IN THE LAWS OF A THE EXTENT THAT THEY CAN BE FOUND IN THE LAWS OF A

GIVEN SOCIETY, INFORMAL TO THE EXTENT THAT THEY ARE

PART OF AN INDIVIDUAL'S SOCIAL CONSCIENCE.

(SHAFRITZ, RUSSEL, CHRISTOPHER, 2007)


THE ETHICAL DIMENSIONS OF DECISION MAKING

� WHEN MAKING DECISIONS, PUBLIC ADMINISTRATORS INEVITABLY PURSUE CERTAIN GOALS, WHETHER PERSONAL, ORGANIZATIONAL, OR SOME MIXTURE OF BOTH. THE PURSUIT OF GOALS INVOLVES STRATEGIC BOTH. THE PURSUIT OF GOALS INVOLVES STRATEGIC AND TACTICAL CHOICES TO ACHIEVE THEM (MEANS AND ENDS).

� SUCH DECISIONS RAISE QUESTIONS ABOUT THE PROPRIETY OF THE MEANS USED IN IMPLEMENTING A COURSE OF ACTION TO DEAL WITH A PUBLIC PROBLEM.


INSTITUTIONAL ETHICS

� WHEN AN INSTITUTION OF GOVERNMENT PURSUES ORGANIZATIONAL GOALS AND SETS ON A COURSE OF ACTION TOWARD REACHING THOSE GOALS, THE END ACTION TOWARD REACHING THOSE GOALS, THE END ITSELF MAY BE SEEN AS SO COMPELLING AS TO SEEMINGLY JUSTIFY ANY MEANS.

� ORGANIZATIONS HAVE OFTEN STRIVEN TO CLARIFY SUCH DILEMMAS IN DECISION MAKING BY ARTICULATING CODES OF ETHICS TO GUIDE THE BEHAVIOR OF THEIR MEMBERS.


PERSONAL ETHICS

� OFTEN AT ISSUE IN DECISION MAKING ARE PERSONAL ETHICS.

� THE TEMPTATION TO DIVERT SOME OF PUBLIC FUNDS � THE TEMPTATION TO DIVERT SOME OF PUBLIC FUNDS OR RESOURCES TO PERSONAL USE CAN BE GREAT AND THE RISK OF EXPOSURE OFTEN SMALL.

� THE MAIN REASON FOR THE WORLDWIDE PRESENCE OF PUBLIC ADMINISTRATIVE CORRUPTION IS THAT PUBLIC ADMINISTRATORS HAVE SOMETHING TO ALLOCATE THAT OTHER PEOPLE WANT.


INTENDED OR DESIGNED CHANGES INTO

ESTABLISHED OR ROUTINE WAYS OF LIFE

(FARAZMAND, 2007)


� THE MEANING OF ‘REFORM’ IS QUITE DISTINCT FROM THE IDEA OF ‘REVOLUTION’, WHICH IMPLIES THE TOTAL OVERTHROW OF OLD STRUCTURES AND SYSTEM, AND THEIR REPLACEMENT BY NEW ONES.REPLACEMENT BY NEW ONES.


ADMINISTRATIVE REFORM

� A USEFUL WORKING DEFINITION OF ADMINISTRATIVE REFORM IS THE INDUCED, ADMINISTRATIVE REFORM IS THE INDUCED, PERMANENT IMPROVEMENT IN ADMINISTRATION.

(WALLIS, 1993)


� THE WORD ‘INDUCED’ INDICATES A FORM OF ADMINISTRATIVE CHANGE WHICH IS DELIBERATELY BROUGHT ABOUT, NOT ONE WHICH JUST HAPPENS BY ACCIDENT OR WITHOUT THE MAKING OF ANY CONSCIOUS EFFORT.MAKING OF ANY CONSCIOUS EFFORT.

� THE WORD ‘PERMANENT’ CARRIES THE CONNOTATION THAT THE CHANGES INTRODUCED WILL BE LONG-TERM, NOT JUST TEMPORARY.

� SIMPLY PUT TO IMPROVE MEANS ‘TO MAKE BETTER’.


�THE FOCUS IS ON THE NATIONAL ADMINISTATIVE

SYSTEM AS THE UNIT OF ANALYSIS AND IT TENDS TO

CONCENTRATE ON BUREAUCRACY AS A NATIONAL

INSTITUTION AS WELL AS THE BUREAUCRACY’S

RELATIONS WITH THE ENVIRONMENT, PARTICULARLY RELATIONS WITH THE ENVIRONMENT, PARTICULARLY

THE POLITICAL AUTHORITY AND THE PEOPLE AS

REPRESENTED AMONG OTHERS BY THE CIVIL SOCIETY.


POLITICAL

FOCUS OF ANALYSIS

POLITICAL AUTHORITY

SOCIETY



CV



� IN A CLIMATE OF SOCIAL VALUES THAT STRESS PARTICIPATION AND DEMOCRACY, BUREAUCRACIES WITH THEIR CENTRALIZED STRUCTURES OF AUTHORITY AND CONTROL ARE ANACHRONISTIC. ANACHRONISTIC.

(PFEFFER AND SALANCIK, 1978)

� POLITICAL DEMOCRACY, SOCIETAL TRANSFORMATIONS, AND TECHNOLOGICAL PROGRESS HAVE MODIFIED THE STRUCTURES AND VALUES OF PUBLIC ADMINISTRATION.


� A COMPLEX PROCESS OF FUNCTIONAL AND SOCIAL DIFFERENTIATION HAS GRADUALLY ERODED THE RIGIDITIES OF HIERARCHICAL AUTHORITY STRUCTURES AND FURTHER MITIGATED THE OLD PERCEIVED ANTINOMY BETWEEN STRUCTURE AND ANTINOMY BETWEEN STRUCTURE AND ANTINOMY BETWEEN STRUCTURE AND ANTINOMY BETWEEN STRUCTURE AND PERCEIVED ANTINOMY BETWEEN STRUCTURE AND ANTINOMY BETWEEN STRUCTURE AND ANTINOMY BETWEEN STRUCTURE AND ANTINOMY BETWEEN STRUCTURE AND CHANGECHANGECHANGECHANGE.

� IN MANY WAYS, DEBUREAUCRATIZATION IS THE MANYSIDED OUTCOME OF THIS CUMULATIVE PROCESS.



PUBLIC ADMINISTRATION CULTURE IS CHANGING

PUBLICMANAGER

LEGISLATORS

TRANSNATIONALORGANIZATIONS

MULTINATIONAL CORPORATIONS

NONPROFITORGANIZATIONS

POLICY POLICYPOLICY

POLICY

PUBLIC 1

PUBLIC 3

PUBLIC 2

PUBLIC 4

PUBLIC 5

SOURCE: JONATHAN F. ANDERSON IN FARAZMAND, PINKOWSKI, 200756S3-Unpas_2012

GLOBALIZED PUBLIC POLICY PROCESS

RULE BOUND

FLEXIBLE

INNOVATIVE

PROBLEM SOLVING

PROCESSORIENTED

FOCUS ON INPUTS RATHER THAN RESULT

REFORM DYNAMIC

RESULT ORIENTED

ENTERPRENEURIAL

ENTERPRISING


� INSTITUTIONAL BUILDING.

� INSTITUTIONAL EMPOWERMENT.

� SKILL AND PROFFESIONAL DEVELOPMENT --> CAPACITY

BUILDING.BUILDING.

� DECENTRALIZATION.

� DEBUREAUCRATIZATION.

� PRIVATIZATION.


APPROACHES TO

ADMINISTRATIVE REFORM

OUTCOMES PROCESS BOTH


� THE OUTCOMES: THE MEANS TO MAKE THE ADMINISTRATIVE SYSTEM A MORE EFFECTIVE INSTRUMENT FOR SOCIAL CHANGE, A BETTER INSTRUMENT TO BRING ABOUT POLITICAL EQUALITY, SOCIAL JUSTICE AND ECONOMIC GROWTH (SAMONTE, SOCIAL JUSTICE AND ECONOMIC GROWTH (SAMONTE, 1970)

� ON PROCESS: CHANGING ESTABLISHED BUREAUCRATIC PRACTISE, BEHAVIOURS AND STRUCTURES (KHAN, 1981)

� INTERPORATE BOTH VIEWS BY LINKING THE PROCESSUAL CHANGED TO THE PRODUCTION OF A MORE EFFECTIVE AND EFFICIENT BUREAUCRACY (QUAH, 1976 AND JREISAT, 1988)


THE DIFFICULTIES

� LACK OF AWARENESS OF HOW BAD THE

ADMINISTRATION’S PERFORMANCES IS, OR HOW

IMPROVEMENTS MIGHT BE UNDERTAKEN.

� THE CHANGE INVOLVED IN ADMINISTRATIVE REFORM MAY � THE CHANGE INVOLVED IN ADMINISTRATIVE REFORM MAY

MEET CONSIDERABLE RESISTANCE. BUREAUCRACIES

THEMSELVES TEND TO DISLIKE CHANGE, ESPECIALLY WHEN

THEIR OWN INTEREST ARE AT STAKE.

� PROPOSALS FOR CHANGE MAY BE TOO VAGUE OR

CONFUSED TO BE EASILY PUT INTO PRACTISE.


� THOSE WHO ARE RESPONSIBLE FOR IMPLEMENTATION MAY HAVE VERY LITTLE UNDERSTANDING OF WHAT IS SUPPOSED TO BE HAPPENING OR OF WHAT HAS BEEN PROPOSED

� WHAT MAY WORK IN ONE SITUATION MAY BE QUITE UNWORKABLE IN ANOTHER.UNWORKABLE IN ANOTHER.


� THESE MORE TRADITIONALLY ORIENTED GROUPS WANT TO

HOLD ON TO THEIR EXISTING POSITIONS AND RESIST

EFFORTS BY THE MODERNIZING ELITE TO TRANSFORM

THEM. THEY MAY EVEN TURN INTO AN ANTIMODERN ELITE THEM. THEY MAY EVEN TURN INTO AN ANTIMODERN ELITE

USING, HOWEVER, MODERN METHODS, TO PUSH

NONMODERN DEMANDS.


TO OVERCOME THE DIFFICULTIES

� THE PROGRAM OF ADMINISTRATIVE REFORM SHOULD

BE AS BROAD AS POSSIBLE, SPREADING INTO AS MANY

INTERSTICES OF THE SOCIAL ORDER AS IS POSSIBLE.

� ATTENTION SHOULD BE GIVEN TO STRENGTHENING

INSTITUTIONS THAT MIGHT ULTIMATELY RESTRAIN INSTITUTIONS THAT MIGHT ULTIMATELY RESTRAIN

BUREAUCRATIC EXCESS. THE QUALITY OF LEGISLATIVE

OVERSIGHT AND JUDICIAL SCRUTINY OF

BUREAUCRATIC BEHAVIOR ARE IMPORTANT

ELEMENTS.

� THE ROLE OF PUBLIC SCRUTINY IS ALSO IMPORTANT,

SUCH AS PLAYED BY THE MEDIA AND CIVIL SOCIETY.


� THE REFORMER'S TASK IS TO IDENTIFY CORRECTLY THE

PROBLEMS AND SUPPLY ANSWERS WHICH ARE FEASIBLE

BOTH TECHNICALLY AND POLITICALLY. THE REFORMS

NEED TO ADDRESS THE FIT BETWEEN ORGANIZATIONS

AND ENVIRONMENT.

� ORGANIZATIONAL ENVIRONMENTS IN THE DEVELOPING � ORGANIZATIONAL ENVIRONMENTS IN THE DEVELOPING

WORLD ARE UNCERTAIN AND TURBULENT. THIS MEANS

THAT REFORM WILL BE PERMANENTLY ON THE AGENDA

BUT VARYING IN INTENSITY ACCORDING TO THE DEGREE

OF TURBULENCE, THE FUNDING AVAILABLE AND THE

LEVEL OF FAITH IN THIS FORM OF ORGANIZATIONAL

ENGINEERING.


1945-1950 1950-1959 1959-1966 1999-SEKARANG

REVOLUSI DEMOKRASIPARLEMEN

DEMOKRASITERPIMPIN

ORDE BARU

BAGIAN DARI REZIM YANG BERKUASA

DEMOKRASI

?

1966-1999

MENDUKUNG POLITISASI PARPOL

� POLARISASI IDEOLOGI

� IDEOLOGI-SASI BIROKRASI

BERKUASA LOYALITAS TUNGGAL

TRILOGI PEM-BANGUNAN

?� DEPOLITI-SASI BIROKRASI

� BIROKRASI MENDUKUNG DEMOKRASI


DEMOKRASI LIBERAL/PARLEMENTER

BIROKRASI TERKOTAK-KOTAK DALAM PARTAI

POLITIK

1945

S.D.

1950

BIROKRASI RI PENINGGALAN BELANDA DAN

JEPANGMENUNJANG PERJUANGAN KEMERDEKAAN

DAN KEDAULATAN

1950

S.D.

1959� UPAYA REFORMASI ADMINISTRASI

SUDAH DIMULAI

� PANITIA ORGANISASI KEMENTRIAN

(WILOPO), 1952

� BADAN PENGAWAS

KEGIATAN APARATUR

NEGARA (BAPEKAN), 1959

� PANITIA REFORMASI

APARATUR NEGARA

(PARAN) 1962

1959

S.D.

1966

DEMOKRASI TERPIMPIN

POLARISASI

(IDEOLOGI)

BIROKRASI

PERAN

NEGARA

MAKIN

BESAR

PERAN

APARATUR

NEGARA

MEMBESAR

S3-Unpas_2011 www.ginandjar.com 69

1966

S.D.

1998

ORDE BARU

BIROKRASI MENYATU DENGAN KEKUASAAN (LOYALITAS TUNGGAL)

SISTEM OTORITER

MENGHASILKAN:•STABILITAS

•PERTUMBUHAN EKONOMI•PEMERATAAN/PENGURANGAN

KEMISKINAN

TAP MPRS NO. 1/1966

TIM PAAP

MENTERI PAN PADA AWAL ORDE BARU WAKIL KETUA BAPPENAS

KEMISKINAN

MENKO WASBANG PAN

1998

S.D.

SEKARANG

DEMOKRASI MENPAN

PEMISAHAN PENGUASA POLITIK DENGAN BIROKRASI(DEPOLITISASI BIROKRASI)

MENPAN DAN REFORMASI BIROKRASI

TRILOGI PEMBANGUNAN

TIM REFORMASI BIROKRASI NASIONAL

S3-Unpas_2011 www.ginandjar.com 70


INSTITUSI TERTATA BAIK?

LITHMUS TEST KINERJA BIROKRASI

SDM BERKUALITAS?

CARA KERJA - EFISIEN?

- EFEKTIF?


ETIKA - JUJUR?

- BERSIH?

AKUNTABILITAS - TEGAS?

- JELAS?

TRANSPARANSI TERBUKA?


� KONTROL - BERFUNGSI?

MASYARAKAT - RESPONSIF?

� HASIL KARYA OPTIMAL?� HASIL KARYA OPTIMAL?


� KAUFMANN-KRAAY (KK)

� COUNTRY POLICY AND INSTITUTIONAL

ASSESSMENT (CPIA)ASSESSMENT (CPIA)

� DOING BUSINESS

� INVESTMENT CLIMATE SURVEY (ICS)

� GLOBAL INTEGRITY INDEX (GII)

� PUBLIC EXPENDITURE AND FINANCIAL

ACCOUNTABILITY (PEFA)


�TRANSPARENCY INTERNATIONAL

CORRUPTION INDEX

�UNDP:�UNDP:

GOVERNANCE INDICATORS:

A USER GUIDE


� INSTITUSI : BERKEMBANG PESAT

LEMBAGA-LEMBAGA

BARU

KOMISI-KOMISI

BADAN-BADAN

GOOD THEORY, BAD POLICY?

GOOD POLICY, BAD PRACTICE?

� DESENTRALISASI : - 33 PROVINSI

- 398 KABUPATEN

PEMEKARAN - 93 KOTA

� REFORMASI : SISTEM PENGGAJIAN KHUSUS

BIROKRASI BEBERAPA INSTANSI

BADAN-BADAN

DEWAN-DEWAN


GOOD THEORY

GOOD POLICYGOOD POLICY

GOOD PRACTICE




EXECUTIVE STAFF AGENCIES

LEGISLATURE

LEGISLATIVE STAFF AGENCIES

CHIEF EXECUTIVE

MEDIA

OUTSIDE AUDITORS

SOCIOCULTURAL NORMS

PUBLIC ADMINISTRATORS:

(ROSENBLOOM, KRAVCHUCK, 2005)

OTHER AGENCIES, DIFFERENT LEVELS

POLITICAL PARTIES

STAFF AGENCIES

COURTS

OTHER AGENCIES, SAME LEVEL

INTEREST GROUPS

MEDIADEPARTMENT AND AGENCY HEAD


ENVIRONMENT

• CULTURAL CHANGES AND EVENTS

• ECONOMIC CHANGES AND EVENTS

• POLITICAL CHANGES AND EVENTS

INPUTS

• DEMANDS FOR PROGRAMS AND SERVICES

SUPPORT

• MONEY

• STAF

ROLES PLAYED

ADMINISTRATIVE LINE AGENCIES

“WITHIN-PUTS”

• RULES

• PROCEDURES

• GOALS

• STRUCTURE

• PERSONAL

OUTPUTS

• GOODS

• SERVICE

• POLICIES

• PROGRAMME

• INFORMATION

PUBLIC ADMINISTRATION IN A DEMOCRATIC

POLITICAL SYSTEM: THE CONVERSION PROCESS

EVENTS

• SOCIETAL CHANGES AND EVENTS

ROLES PLAYED BY

• PARTY

• INTEREST GROUP

• STAFF AGENCIES

• PERSONAL

• EXPERIENCE

LEAD TO

(ROSENBLOOM, KRAVCHUCK, 2005)


� ONE OF THE MOST IMPORTANT AND PERSISTING

CHALLENGES OF MODERN GOVERNMENT IS HOW TO

RECONCILE THE DEMANDS OF DEMOCRACY WITH THE

IMPERATIVES OF BUREAUCRACY.

� BUREAUCRACIES ARE HIERARCHICAL INSTITUTIONS THAT

CAN PROVIDE THE CAPACITY AND EXPERTISE TO

ACCOMPLISH COMPLEX SOCIAL TASKS, BUT THEY ARE ACCOMPLISH COMPLEX SOCIAL TASKS, BUT THEY ARE

FREQUENTLY CHARACTERIZED, AS UNDEMOCRATIC AND

EVEN THREATENING TO DEMOCRACY.

� DEMOCRACIES ARE SYSTEMS OF GOVERNMENT THAT ARE

BASED, DIRECTLY OR INDIRECTLY, ON THE PRINCIPLE OF

POPULAR CONTROL.


� THEY ATTEND IN DIFFERING MEASURES TO PRINCIPLES

OF MAJORITY RULE AND DEFERENCE TO THE

PERSPECTIVES OF INTENSE INTERESTS AMONG THE

PUBLIC. BUT AS SUCH, THEY NEED NOT NECESSARILY

SHOW KEEN ATTENTION TO THE VALUES OF EFFICIENCY,

EFFECTIVENESS, OR SPECIALIZED EXPERTISE.

� BUREAUCRACY MAY BE THOUGHT OF AS � BUREAUCRACY MAY BE THOUGHT OF AS

GOVERNMENT'S TOOL TO EXERCISE COERCION AS AN

INSTRUMENT FOR PRODUCTIVE ACTION. AS

INSTITUTIONAL FORMS DESIGNED TO EMPHASIZE

DIFFERENT VALUES, BUREAUCRACY AND DEMOCRACY

SIT IN AN UNEASY RELATIONSHIP WITH EACH OTHER.


Democracy Bureaucracy><Democracy Bureaucracy><

Transactional cost


TENSIONTENSION

DEMOCRATIC DEMOCRATIC

PROCESSPROCESS

BUREAUCRATIC/ BUREAUCRATIC/

TECHNOCRATIC TECHNOCRATIC PROCESSPROCESS

TECHNOCRATIC TECHNOCRATIC

PROCESSPROCESS


www.ginandjar.com

DEMOCRATIC DEMOCRATIC

IMPERATIVESIMPERATIVES

BUREAUCRATIC BUREAUCRATIC

PROFESIONALISMPROFESIONALISMVSVS

SOVEREIGN RIGHT OF THE SOVEREIGN RIGHT OF THE

PEOPLEPEOPLE EFFICIENCY EFFICIENCY

&&VSVS &&

EFFECTIVENESSEFFECTIVENESS

ELECTED ELECTED

REPRESENTATIVESREPRESENTATIVES

CONTEST FOR POWERCONTEST FOR POWER

VSVS

ACCOUNTABLEACCOUNTABLE


POLITICAL POLITICAL

REFORMREFORM


REFORMREFORM

POLITICAL POLITICAL

CORRUPTIONCORRUPTION


CORRUPTIONCORRUPTION

REFORMREFORM REFORMREFORM

THE BEST INTEREST OF THE PEOPLETHE BEST INTEREST OF THE PEOPLE


� A GOVERNANCE APPROACH SEEKS TO INTEGRATE POLITICAL

AND BUREAUCRATIC FORCES AT MULTIPLE LEVELS TO

INDICATE HOW PROGRAMS ARE DESIGNED, ADOPTED,

IMPLEMENTED, AND EVALUATED IN TERMS OF BOTH

EFFECTIVENESS AND DEMOCRACY. EFFECTIVENESS AND DEMOCRACY.

� SUCH A POINT OF VIEW CLEARLY RECOGNIZES THAT ONLY

WITH EFFECTIVE IMPLEMENTING INSTITUTIONS CAN

SOCIETIES GENERATE THE FAIRNESS AND SLACK RESOURCES

THAT PERMIT DEMOCRACIES WITH THEIR LARGE

TRANSACTION COSTS TO EXIST AND PROSPER.


IN CONCLUSION

� THE PROGRAM OF ADMINISTRATIVE REFORM SHOULD BE AS BROAD AS POSSIBLE, SPREADING INTO AS MANY INTERSTICES OF THE SOCIAL ORDER AS IS POSSIBLE.

� ATTENTION SHOULD BE GIVEN TO STRENGTHENING INSTITUTIONS THAT MIGHT ULTIMATELY RESTRAIN INSTITUTIONS THAT MIGHT ULTIMATELY RESTRAIN BUREAUCRATIC EXCESS. THE QUALITY OF LEGISLATIVE OVERSIGHT AND JUDICIAL SCRUTINY OF BUREAUCRATIC BEHAVIOR ARE IMPORTANT ELEMENTS.

� THE ROLE OF PUBLIC SCRUTINY IS ALSO IMPORTANT, SUCH AS PLAYED BY THE MEDIA AND CIVIL SOCIETY.


� THE REFORMER'S TASK IS TO IDENTIFY CORRECTLY THE PROBLEMS AND SUPPLY ANSWERS WHICH ARE FEASIBLE BOTH TECHNICALLY AND POLITICALLY. THE REFORMS NEED TO ADDRESS THE FIT BETWEEN ORGANIZATIONS AND ENVIRONMENT.

� ORGANIZATIONAL ENVIRONMENTS IN THE DEVELOPING WORLD ARE UNCERTAIN AND TURBULENT. THIS MEANS THAT REFORM WILL BE PERMANENTLY ON THE AGENDA THAT REFORM WILL BE PERMANENTLY ON THE AGENDA BUT VARYING IN INTENSITY ACCORDING TO THE DEGREE OF TURBULENCE, THE FUNDING AVAILABLE AND THE LEVEL OF FAITH IN THIS FORM OF ORGANIZATIONAL ENGINEERING.

� POLITICAL CORRUPTION IS NO LESS EVIL THAN BUREAUCRATIC CORRUPTION. THUS POLITICAL REFORM IS AS IMPORTANT AS BUREAUCRATIC REFORM.


OLD PUBLIC

ADMINISTRATION

WEBERIANBUREAUCRACY

CORE VALUES:

� EFFICIENCY

� EFFECTIVENESS

� ECONOMY

II

� COMPETENCE

NEW PUBLIC

ADMINISTRATION

FREDERICKSON’SNPA

ENTRE-PRENEURIAL

GOVERN-

MENT

NPM

� CULTURAL AND

“TEN COMMAND-

PRE-

MODERN

MODERN POST-

MODERN

NPS

MORE

ARTS THAN

SCIENCE

PRE WILSONIA

N

PUBLIC ADMINISTRATION

DIMANA KITA SEKARANG?

DISINI?

� ECONOMY� COMPETENCE

� IMPERSONAL� IMPARTIAL

�STUCTURE�HIERARCHY

FUNCTIONII

RULES/PROCEDURE/PROCESS

AND

SOCIETAL

VALUES

� AFFIRMATIVE

COMMAND-

MENTS”

� PERFORMANCE

� OUTSOURCING� CONTRACTING

� PUBLIC = CUSTOMER

GOVERNANCE

E-GOVERNANCE

� NETWORK� COLLABORATIVE

� PARTICIPATORY

� STAKEHOLDER� DEMOCRACY

ETHICS, ACCOUNTABILITY, TRANSPARENCY

�COLONIAL

�FEUDAL�TRADI-

TIONAL

DISINI? DISINI? DISINI?www.ginandjar.com 93S3-Unpas_2012

Business

Development Administration chapter 7 (UNPAS 2012)