BUREAUCRATIC MODEL IN THE PUBLIC ADMINISTRATION

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Revista de Management i Inginerie Economic, Vol. 11, Nr. 3, 2012

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CUPRINS

1. EditorialVariaiunile implicrii umane n procesul de munc ............................................................................. 5

Prof.dr.ing., ec. Ioan Abrudan Universitatea Tehnic din Cluj-Napoca

2. SintezeEficacitatea operaional i strategia ..................................................................................................11

Prof.dr. Moise uurea, Asist.dr. Mihaela Rotaru Universitatea Lucian Blaga din SibiuFundaii i mecanisme ale economiilor de aglomerare ....................................................................... 23

Conf.dr.ec. Raluca Irina Clipa Universitatea Gh. Zane din IaiRolul modelrii motivaionale n creterea competitivitii ................................................................. 35

Prof.dr.ing. Monica Izvercianu, drd. Alina Radu Universitatea Politehnica din Timioara

Elaborarea i implementarea planului de afaceri ................................................................................ 41

Lect.dr. Carmen Gabriela Secar Universitatea din PitetiProverbe i management interferene poteniale .............................................................................. 51

Dr.ing. Radu t. Lupan Universitatea de Nord Baia Mare3. Studii i cercetri

Scenariu strategic privind dezvoltarea turismului urban n Romnia .......................................................... 73

Lect.dr. Mihaela Dana Parfene Universitatea George Bariiu din BraovVor supravieui vechile ntreprinderi crizei economice? ................................................................. 83

Drd.ing. Adriana idor, Prof.dr.ing. Liviu Morar Universitatea Tehnic din Cluj-NapocaAnaliza sectorului ceramic n Romnia ............................................................................................... 91

Drd. Zsuzsanna Turczy Universitatea Tehnic din Cluj-Napoca,Prof.dr.ing. Liviu Marian Universitatea Petru Maior din Trgu MureProducia curat n industria de pielrie i managementul su tehnologic ..................................101

Nicoleta Trandafir, Constantin-Dan Dumitrescu Universitatea Politehnica TimioaraPolitici de producie i de personal n cadrul unei societi productoare de cablaje electrice (3) . 111

ef lucr.ing.dr.,ec. Ancua Blteanu Universitatea din Piteti

Aspecte privind managementul stocurilor de materii prime folosind reele neuronale ..................... 121

Drd.ing. Emilia Cmpean, Prof.dr.ing. Liviu Morar, Drd. Pap tefan Universitatea Tehnicdin Cluj-Napoca, Ing. Dumitru Pop Grupul colar V.Gelu Zalu,

Management orientat spre acionari ..................................................................................................129

Drd.ing. Paul Rusu, Drd.ing. Lucian Ovidiu Jimborean Universitatea Tehnic din

Cluj-Napoca


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Viziunea managerilor asupra dezvoltrii resurselor umane ..............................................................137

Drd. Alexandra Maria Fira Universitatea din Craiova4. Metodologie

Metodologia cercetrilor privind factorii determinani ai structurii capitalului firmelor ................. 145

Conf.dr. Mihaela Brndua Tudose Universitatea Gh. Zane din IaiModele ale msurrii performanei organizaionale .........................................................................157

Drd.ing. Bogdan Mircea Cardo, Drd.farm. Mihaela-Eva Mu Universitatea Tehnic dinCluj-NapocaMetodologia de evaluarea a riscului marin utiliznd evaluarea formal a siguranei

n bazinul Mrii Negre ....................................................................................................................... 169

ef lucr.dr.ec.,ing. Carmen Gasparotti Universitatea Dunrea de Jos GalaiModelul birocratic n administraia public ...................................................................................... 185

Drd. Dana Veiss, Drd.ing. Ioan Simion Dan Universitatea Tehnic din Cluj-Napoca

Amplasarea optim a resurselor de fabricaie i evaluarea economic n cadrul unui proiect ........ 199

Drd.ing. Marian Andrei Guru Universitatea Politehnica Bucureti

Segmentarea pieei consumatorilor de gaze naturale din Romnia ................................................... 207

Drd.ec. Ana Oltean Universitatea Tehnic din Cluj-Napoca

5. Debut studenescMunca n echip................................................................................................................................. 215

Lorena Raiu, Student an I, Inginerie Economic Universitatea Tehnic din Cluj-Napoca6. Studii de caz

Relaia cu prile interesate. Studiu comparativ ntre IMM-urile romneti i cele suedeze................... 217

Dr.ing.ec. Mihaela Ancua Mirea, Prof.dr.ing. Dan Cndea Universitatea Tehnic dinCluj-Napoca

7. Semnal ....................................................................................................................................2278. Recenzii

Despre Schimbare organizaional i dezvoltarea facultii......................................................... 229Prof.dr.ing. DHC Constantin Oprean Universitatea Lucian Blaga Sibiu

9. PersonalitiFriedrich Hayek i contribuiile sale n tiinele economice .............................................................. 233

Drd. Dana Teodora Dragonici Universitatea Tehnic din Cluj-Napoca


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Metodologie

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MODELUL BIROCRATICN ADMINISTRAIA PUBLIC

BUREAUCRATIC MODELIN THE PUBLIC ADMINISTRATION

Drd. Dana VEISS

Drd.ing. Ioan Simion DANUniversitatea Tehnic din Cluj-Napoca

Abstract: This paper refers to the stages of the bureaucracy development as a form of government andpublic administration system. From Max Weber's phrase, "bureaucracy is the ideal type of institutionalorganization towards which the modern society aspires" today, the concept has received pejorativedirections which concludes that the public administration should have as main characteristic or purpose,

creating new jobs and not the public interest served. Assuming that efficiency is the ultimate goal of anyinstitution and effectiveness as the ratio of the achieved objective and the result to achieve, we willmanage to influence productivity in the public sector.

Keywords: birocracy, Weber Max, public administration

1 INTRODUCEREBirocraia este un mecanism gigantic

acionat de oameni mruni., Balzac

Birocraia este un cerc din care nu poate

scpa nimeni. Ierarhia sa este bazat pecunoatere. Cei din vrf consider c cei de sub ei

cunosc amnuntele, iar cei de jos i crediteaz pe

cei din vrf cu cunoaterea ansamblului, i aa toi

sunt pclii reciproc., (Karl Marx, 1973)

Termenul de birocratie este pentru prima datadefinit n anul 1745, de ctre Vincent de Gournay

prin adaugarea termenului grecesc kratos (aconduce) la cuvntul francez bureau (birou).

Administraia public urmeaz un modelbirocratic ncepnd de la mijlocul secolului al

1 INTRODUCTION"Bureaucracy is a giant mechanism operated

by small people.", Balzac

"Bureaucracy is a circle can not escape

anyone. Hierarchy is based on knowledge. The topbelieves that those below them know the details,

and those below them credited on the top with all

knowledge, and so all are mutually deceived."(Karl Marx, 1973)

The term bureaucracy is first defined in 1745by Vincent de Gournay by adding the Greek kratos(to lead) to the French word bureau (office).

Government bureaucracy is a model from themid eighteenth century in Prussia (Jacoby, 1973).


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XVIII-lea n Prusia (Jacoby, 1973).

n secolul al XIX-lea acest model a fostpreluat i modernizat de Woodrow Wilson nStatele Unite ale Americii, i de marele MaxWeber, sociolog german.

nc din anul 1930, Laski J.H. spunea cabirocraia este o form a guvernrii n care,efectiv, domin funcionarii publici, n timp ce F.Lane afirma c birocraia nseamn un mod deadministrare complex, la scar lrgit, un anumitcomportament organizaional. (J.H.Laski, 1936).

Mathiot considera c birocraia are avantajeapreciabile, deoarece funcionarii publici, recrutai

n funcie de talentul lor, menin continuitateastatului i a serviciilor publice. (Sawicki F. andMathiot (P.), 1999).

Max Weber (1947) era de prere cbirocraia reprezint tipul ideal de organizare

instituional spre care tinde societatea modern: ea este caracterizat de totalitatea

aptitudinilor angajailor structurai ntr-oordine pre- stabilit i o diviziune amuncii pe birouri;

dezvolt tiina administraiei prin facili-tarea progresului sistemelor economice;

birocraia reprezint modul cel mai eficientde organizare al colectivitii. Eficienabirocraiei fiind rezultatul modului decolaborare dintre om i main.

Deci, birocraia ca baz a funcionriiinstituiilor publice va impune ordine n activitateaadministrativ.

Weber M., afirm faptul c tipul pur birocraticde organizare administrativ era capabil s ating

cel mai nalt grad de eficacitate i c este n acest

sens cel mai raional mijloc cunoscut de a exercita

puterea asupra fiinelor umane. Astfel Weber, formuleaz propria teorie abirocraiei care, dup prerea sa are urmtoarelevalori:

serviciu public oferit de profesionitieducai,

recrutarea i numirea funcionarilor se vaface numai pe baza meritelor dovedite,

va exista neutralitate politic, care va opriadministraia s intervin n politic iinvers,

se va asigura stabilitate pe posturi ifuncii de conducere.

In the nineteenth century this model has been

taken over and modernized by Woodrow Wilson inthe United States, and the great Max Weber,German sociologist.

Since 1930, Laski J.H. said that bureaucracyis "a form of governance in which, effectively,dominate public officials", while F. Lane says that"bureaucracy is a way of complex management, atlarge scale, an organizational behavior".(J.H. Laski, 1936)

Mathiot considered "bureaucracy hasconsiderable advantages because the civil servants,recruited based on their talent, maintain continuity

of the state and public services". (Sawicki F. andMathiot P., 1999).

Max Weber believed that "bureaucracy is theideal type of institutional organization towardswhich the modern society aspires"( Weber, M.(1947):

it is characterized by all employees skillsin a pre-established structure, in an orderand a division of labor for each office;

develops administration science byfacilitating progress for economicsystems;

Bureaucracy is the most efficient way oforganizing the community. Bureaucracyefficiency is the result of the way ofcollaboration between man and machine.

So basic functioning bureaucracy of the publicinstitutions will require order in the administrativeactivity.

M. Weber, states that "purely bureaucratictype of administrative organization was able toachieve the highest degree of efficiency and thatthis is the most rational known way of exercising

power over human beings.Thus Weber, formulates his own theory ofbureaucracy which, in his opinion has thefollowing values:

public service provided by trainedprofessionals,

recruitment and appointed officials will beproved only on the merits,

there is political neutrality, which stopsthe administration to intervene in the

political and vice versa, Will ensure stability and job positions.


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Metodologie

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2 STILURI DE CONDUCEREDorind s explice modalitile prin care

angajaii respect i se supun autoritii, Weberdescrie trei tipuri de stiluri de conducere.( Weber,M. 1958).

Figura 1. Stiluri de conducere conform Weber M

2.1 Organizaia bazat pe stilul carismaticAutoritatea se realizeaz prin calitile

liderului, pe charisma sa. Ea este format din lideri discipoli. Criteriul de alegere n posturile deconducere a discipolilor, se va face n funcie deloialitatea, devotarea i supunerea fa de lider.

Administrarea organizaiei bazat pe lider, nuse desfaoar pe baza de norme de conduit saureguli, ea se bazeaz n principal doar pe dorineleliderului. El conduce dup bunul plac, dupa

propriile valori i pofte.Datorit acestui fapt, aceste societi nu sunt

puternice sau de durat, de obicei dispar odat cudispariia liderului. Dac nu va aprea un alt lider,aceast societate se va putea transforma fie ntr-oorganizaie tradiional, dac va exista un succesor

pe baz de rudenie, fie ntr-o societate birocratic.

2.2 Organizaia bazat pe stilul clasic organizaia patriarhal

Aceast organizaie este organizaiatradiional, care este acceptat datorit faptului comul nu este dispus la schimbare i i este mult maiuor s accepte ceva ce dintotdeauna a fost aa.Aici conteaz mai mult datinile, motenirile, i nun ultimul rnd, rudeniile i rangul.

n funcie de gradele de rudenie, se vor selectaoamenii pentru posturile de conducere, iar relaiileexistente ntr-o astfel de organizaie sunt mai multde tipul stpn supus.

2 LEADERSHIP STYLESSeeking to explain the ways in which

employees respect and obey authority, Weberdescribes three types of leadership styles.(Weber, M., 1958)

Figure 1. Leadership styles according to M. Weber.

2.1 Organization based on charismatic styleAuthority is made by the leader qualities on

his charisma. It consists of leader and followers.Criteria of choice in the management of thedisciples will be based on loyalty, devotion andobedience to the leader.

Management organization based leadership is

not accomplished by rules of conduct or rules; it ismainly based only on the leader wishes. He runs atwill, by own values and desires.

Because of this, these companies are notstrong or prolonged and they usually disappearwith the disappearance of the leader. If thereappears another leader, this company will be ableto transform either into a traditional organization,if there is a successor based on kinship or abureaucratic society.

2.2 Organization based on the classic style -patriarchal organization

This organization is traditional organization,which is supported by the fact that man is notwilling to change and it is much easier to acceptsomething that has always been so. This focusesmore on traditions, heritage, and, last but not least,relatives and rank.

According with the degrees of relationship,this will select people for leadership positions, andthe relationships in such organizations are morelike "master - subject".


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2.3 Organizaia bazat pe stilul raional-legal organizaia birocratic.

Max Weber afirma faptul c o organizaiebirocratic este raional, legal i eficient,trsturi principale pentru societile moderne.

Organizarea birocratic este cea mai eficientform de conducere i de organizare social pentruurmatoarele considerente

fiecare funcionar are o autoritate clardefinit,

funciile de conducere fac parte dintr-oierarhie stabilit, se tie clar cine la cine ieste subordonat,

exist un sistem de norme, proceduri,reguli, dup care funcioneaz societatea,

n toate domeniile de activitate se va lucracu specialiti ,

procesul de selecie pentru funciile deconducere se va baza pe competen imerite.

Max Weber formuleaz ase principii pentrusistemele birocratice moderne (Gerth i Mills, 1968Gerth, H.H. and Wright Mills, 1947):

1. Principiul stabilirii zonelor oficiale dejurisdicie, n funcie de legi, reguli i regulamenteadministrative;

Autoritatea va deriva din cadrul legislativ,format din legi i regulamente scrise.

2. Principiul ierarhiei organizaionaleExist o ierarhie strict, unde conteaz funcia,

managerul va avea autoritate asupra organizaiei.Managerul va delega anumite sarcini specifice,unui nivel inferior lui, spre competent rezolvare.

3. Conducerea modern ntr-un departamentse bazeaz pe documente scrise ;

Ele se pstreaz i se arhiveaz ntr-un anumitformat, existnd n acest sens un regulament deordine interioar n care sunt stabilite regulile decomunicare i de arhivare. Prin pstrareadocumentelor scrise i posibilitatea consultrii lorde cte ori este necesar, organizaia va putea ficonsecvent n aplicarea regulilor sale, avndntotdeauna la ndemn opiunea folosirii lor ncazul unui precedent.

4. Compartimentele de management suntspecializate;

Administrarea, managementul unei organizaii

necesit o pregtire de specialitate, managerul

2.3 Organization based on rational-legalstyle - bureaucratic organization.

Max Weber said that a bureaucraticorganization is rational, legal and efficient, themain features of the modern societies.

Bureaucratic organization is the most efficientform of government and social organization for thefollowing reasons:

each public clerk has a clearly definedauthority,

management functions are part of anestablished hierarchy, it is known clearlywho to whom is subordinated,

there is a system of rules, procedures,rules, after which the company isoperating,

in all fields of activity will work withspecialists,

The selection process for managementpositions will be based on competenceand merit.

Max Weber formulates six principles formodern bureaucratic systems (Gerth and Mills,

1968, Gerth, H.H. and Wright Mills, 1947):1. Principle of establishing official areas of

jurisdiction, according to laws, rules andadministrative regulations;

Authority will derive from the implementedlegislation, consisting in written laws andregulations.

2. Organizational hierarchy principleThere is a strict hierarchy, where the function

counts, the manager will have authority over theorganization. Manager will delegate specific tasksto a lower level, to be solved competently.

3. Modern management in a department isbased on written documents;

They are kept and archived in a certainformat; there is in this sense a regulation of

procedure which sets the rules of communicationand archiving. By keeping the possibility of writtendocuments and their consultation as necessary, theorganization will be consistent in applying its ruleswith the option to use them always at hand.

4. Management departments are specialized;Administration and management of an

organization requires specialized training, manager


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avnd o pregtire specific i de durat. Nu poate fi

manager dect cel care demonstreaz acestecaliti. Nu mai exista liderul charismatic sauconducerea patriarhal

5. Diviziunea muncii este bine stabilit ncadrul organizaiei, numit i activitate pentrubirocraie

Exist activiti principale i activitisecundare, stabilite n funcie de importan idomeniul de activitate.

6. Conducerea departamentelor se asigurpe baza unor reguli generale, avnd la baz meritei performane profesionale.

Gata cu nepotismele sau dorinele proprii,posturile de conducere se ocup doar de ceicompeteni.

naintea teoriei birocraiei a lui Weber, Wilsonsubliniaz faptul c doar cei care fac politic trebuies fie responsabili pentru politicile elaborate,funcionarii devenind responsabili pentru punerea n

practic a lor.Administraia se afl dincolo de sfera politicii.

Problemele administrative nu sunt probleme politice,chiar dac politicul stabilete sarcini pentruadministraie, nu trebuie lsat s-i manipulezeacesteia din urm funcionarii. (Wilson, W., 1887)

Wilson i Weber sunt de acord cu faptul cadministraia poate fi scoas n afara sferei politicedin punct de vedere instrumental i tehnic.

Exist convingerea c administraia publicpoate fi o entitate distinct care trebuie s funcionezen afara politicului.

Modelul lui Weber spune c n administraietrebuie s se dezvolte un sistem unic bazat pe reguliclare, astfel nct organizaia i regulile ei s devinmai importante dect orice individ. Individul urmnd

s se supun regulilor, normelor i procedurilor dinorganizaie.Ocuparea funciilor publice este o vocaie i se

dobndete doar dup o calificare corespunztoare iun examen de promovare. Astzi n administraie seaplic acest model, existnd la iniierea n cariera

public sintagma funcionar debutant. Acesta vaparcurge un stagiu sub ndrumarea unui funcionarpublic definitiv, pn la urmarea definitiv pe post.De obicei, stagiul dureaz un an de zile.

n momentul ocuprii unei funcii publice,funcionarul va fi fidel organizaiei n schimbul

garantrii siguranei locului de munc.

training with a specific and lasting period. There

may not be a manager only the one thatdemonstrates these qualities. There's nocharismatic leader or leadership patriarchalleadership.

5. Division of labor is well established withinthe organization, called the "bureaucratic activity"

There are main activities and secondaryactivities, determined according to the importanceand the scope of the activity.

6. Department management is ensured on thebasis of general rules, based on merit and

professional performance.

No more nepotisms or own desires, leadershippositions are occupied only by the competent ones.

Before Weber's bureaucracy theory, Wilsonpoints out those politicians must be responsible fordeveloped policies; staff becomes responsible forimplementing them.

"The administration is beyond the politicalsphere. Administrative problems are not political,although politics sets tasks for administration, itmust not be allowed to manipulate the publicclerks. "( Wilson, W, 1887)

Wilson and Weber agree that theadministration "can be taken outside the politicalsphere in terms of tools and techniques".

There is the belief that government can be adistinct entity which must operate outside of

politics.Weber's model says that the administration

should develop a single system based on clear rulesso that the organization and its rules to becomemore important than any individual. The individualwill be subject to rules, regulations and proceduresof the organization.

Public office occupation is a vocation and isacquired only after an appropriate qualification anda promotion exam. Today the administration isapplying this model, with the initiation in thecareer of a public official with the word junior. Itwill go through an internship under the guidance ofa permanent official, till the final result until he hasthe permanent position in the institution. Usuallythe internship lasts one year.

When occupying a public office, the officialwill be faithful to the organization in exchange forthe job security guarantee.


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Salariul funcionarului public nu este acordat

n funcie de volumul de munc desfurat ci nfuncie de statut, de funcie i durata serviciului. Eivor avansa astfel, de la nivelul cel mai de jos sprecele mai mari niveluri ale ierarhiei organizaionale.Deci ntregul proces de recrutare i avansare se vaface dup meritele funcionarului i nu prin altemodaliti.

Weber era sigur c acest principiu despecializare pe funcie va implica creterea

productivitii muncii.Procesul decizional va permite realizarea unui

nivel maxim de eficien din punct de vedere

tehnic.El considera faptul c: Precizia, viteza,

fermitatea, gradul nalt de informare, continuitatea,discreia, unitatea, subordonarea strict, reducereaconflictelor interne i costurile cu personalulreprezint caracteristici ale nivelului optim derealizat ntr-o organizaie".

Organizaia birocratic astfel definit, eraprivit ca fiind modalitatea ideal de organizaiepentru administraia public.

Prin comparaie cu politica, care este ntr-ocontinu schimbare, organizarea birocratic,respectnd principiile lui Weber, va puteareprezenta continuitatea att de necesar ntr-o ar.

La sfritul secolului al XIX-lea WoodrowWilson, unul dintre iniiatorii abordrii birocraticen SUA, susinea c ar putea exista o separaieclar ntre politicieni i conducerea instituiilor

publice din administraie, respectiv ntre politic imisiunea instituiilor publice de implementare aacesteia.( Wilson, J. Q, 1989)

Figura 2. Politic VS Administraie

Salary of the civil servant is not paid for the

volume of work performed but on the status,function and length of service. They will advanceso, from the lowest to the highest levels of theorganizational hierarchy. So the whole process ofrecruitment and promotion will be made after thecivil merits and not by other means.

Weber was certain that this principle willinvolve specialization according to labor

productivity growth.Decision-making will enable the maximum

level of technical efficiency.

He believes that "precision, speed, firmness,high degree of information, continuity, discretion,unity, strict subordination, reduction of internalconflicts and personnel costs are features of theoptimal level to achieve in an organization".

Bureaucratic organization as defined abovewas regarded as the ideal way for governmentorganizations.

Compared to the policy that is in constantchange, bureaucratic organization, respecting the

principles of Weber, can be continuity so necessaryin a country.

In the late nineteenth century WoodrowWilson, one of the initiators of the bureaucraticU.S. approach, argued that "there may be a clearseparation between politicians and leading publicinstitutions of government and between publicinstitutions and political mission for itsimplementation."( Wilson, J. Q., 1989)

Figure 2. Political VS Administration

POLITICALADMINISTRATION


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Wilson W., afirma faptul c problemele

administrative nu sunt probleme politice. Cu toatec prin politici se stabilete modalitatea dedesfurare a activitilor din administraia public,nu trebuie depait aceast limit, existnd

pericolul de manipulare a funcionarilor publici.Ca exemplu la aceast sintagm a lui Wilson

planul de aciune al unui guvern nu esteelaborat de instituiile publice din administraie,dar aplicarea lui se realizeaz n administraie.

Wilson aprecia ca i cauz principal nsistemul administrativ din SUA a apariieicorupiei, implicarea politicului n sistemul

administrativ.Stillman Richard, n lucrarea The

American Bureaucracy, 1991, distincia ntrepolitic i administraie reprezint o condiiefundamental pentru declanarea procesuluireformelor ntr-un sistem administrativ.Separarea sistemului administrativ de politic

poate conduce la dezvoltarea domeniuluiadministraiei, la accentuarea profesionalismuluifuncionarilor publici din administraie i lacreterea gradului de libertate al acestora naplicarea politicilor.( Stillman R., 1991)

Cea mai mare ntrebare a lui Wilson, era cumamericanii ar putea ncorpora administraia publicn Constituie.

Recunoate dou sfere de influen:1. politicul = alegerea guvernului este

facut de alegtori2. administraia = nu trebuie s existe

amestec politic.Dac studiind administraia public am putea

determina ce putere ar trebui conferit managerilordin administraie, fr a mpiedica autoritile

statului s-i exercite atribuiile i s-i asumeresponsabilitile ce-i revin, atunci acest studiu arfi de nepreuit.

Opinia public trebuie fac parte din acestesisteme i s devin un critic constructiv nconducerea administraiei publice.

Cu toate c Wilson W., afirm faptul cadministraia este n cea mai mare parte separat de

politic, recunoate existena relaiei dintreadministraie i politic dar sublineaz faptul cadministraia are modul propriu de rezolvare a

problemelor sale, nefiind un instrument pasiv, ci

activ.

W. Wilson said that administrative issues are

not political issues. Although through policies it isset how to conduct the public administrationactivities, this limit should not be exceeded,because there is a danger of manipulation of the

public servants.As an example of this phrase of Wilson "... a

government action plan is not developed by publicadministration institutions, but its application ismade in administration".

Wilson appreciates as the main cause in theadministrative U.S. system is the incidence of

corruption, political involvement in theadministrative system.Richard Stillman, in the paper The American

Bureaucracy, in 1991, said "the distinction betweenpolitics and administration is a prerequisite totrigger a process of reforms in the administrativesystem". "Separation of political administrativesystem may lead to development of theadministration, the increased professionalism ofcivil servants in the administration and increasetheir freedom in applying the policies.(Stillman R,1991)

Most of Wilson's question was howAmericans could incorporate public administrationin the Constitution.

Recognizes two spheres of influence:1. Politics = government election is made

by the voters2. Administration = there should be no

political interference.If studying public administration we could

determine what power should be conferred to theadministrative managers, without preventing theState authorities to exercise powers and assumeresponsibilities incumbent, then this study wouldbe invaluable.

Public opinion must be part of these systemsand become a constructive critic in the publicadministration leadership.

Although W. Wilson, states that publicadministration is largely separated by politics,recognizes the relationship between theadministration and political but highlights the factthat the administration has its own way of solving


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Richard J. Stillman l consider pe Wilson

W., fondatorul disciplinei administraiei publiceamericane (American Public Administration (thediscipline))( Richard Stillman).

Fcnd o comparaie cu un buctar, auto-guvernarea nu are nevoie s-si foloseasc minilegoale pentru a face tot, ci pentru a-i face treaba

poate folosi manui, oale, ustensile de buctarie.Nu ar trebui s se bazeze totul pe un vot, ci artrebui s conteze mai mult prerea celor aflai laconducerea guvernului.

Datoria administraiei publice este de a spuneoamenilor ce fel de administrare s-i doreasc i

s cear, cum s o obin i ce tip de candidat saleag.n concluzia lui Wilson W., studiile

guvernamentale ar trebui s fie comparative,asociative, aa cum s-ar asocia ascuirea unui cuit

pentru alte scopuri, nu cu dorina de ucidere.Guvernarea n Marea Britanie, se

caracterizeaz printr-o limitare evident a puterilor.n Marea Britanie, n sistemele Westminster,

se observ cel mai bine modalitile de influen apoliticului n sfera conducerii aparatuluiadministrativ.

Exist o interdependen clar ntre atribuii iresponsabiliti. Orice structur administrativ aredou atribuii: s informeze politicul asuprastadiului implementriii politicilor i s igestioneze resursele proprii astfel nct politicileexistente s poat fi implementate. Adic fiecarefuncionar public este responsabil de politicileimplementate i se subordoneaz direct, conformierarhiei, efului direct i cetenilor.

Exist o separare clar ntre politic iadministraie. Se presupune din start faptul cadministraia nu trebuie s aib nici o orientare

politic, ea trebuie s-i defoare activitateaconform atribuiilor sale, nu ca urmare ainterveniei politicii.

Aceste sisteme Westminster introduc termenulde responsabilitate formal a ministerelor, adicfiecare ministru va rspunde personal pentruactivitile sale, fiind retribuit pentru aceasta daravnd i un sistem de stimulente care le asigurstabilitatea locului de munc, indiferent deschimbrile politice.

his problem, not a passive instrument, but active.

Richard J. Stillman is considered by W.Wilson, founder of American public administrationdiscipline (American Public Administration (thediscipline)).( Richard Stillman )

By comparison with a cook, self-governmentdoes not need to use bare hands to do, but to do the

job can use gloves, pots and kitchen utensils. Itshould not rely entirely on one vote, but it shouldmatter more the opinion of the ones in charge ofthe government.

The governments duty is to tell people what

kind of management they should wish and ask howto get it and what type of candidate to choose.In W. Wilson conclusion, government studies

should be comparative, associative, as wouldassociate sharpening a knife for other purposes, notwith desire to kill.

Governance in the UK is characterized by anobvious limitation of powers.

In Britain, the Westminster systems, is bestseen how political influence within theadministrative management.

There is a clear interdependence between thetasks and responsibilities. Any administrativestructure has two functions: to inform the politicsof state policy implementation process and managetheir own resources so that existing policies can beimplemented. That every civil servant isresponsible for policies and reports directlyimplemented, according to the hierarchy, to hissuperiors and to the citizens.

There is a clear separation between politicsand administration. It is assumed from the start thatthe authorities should have no political orientation;it must operate according with its duties, notbecause of political intervention.

These Westminster systems introduce the termformal responsibility of ministries that eachminister will be responsible for its activities, beingrewarded for it but having a system of incentivesthat ensures job security, irrespective of politicalchanges.


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3 CONCLUZIISistemul din administraia public tinde s se

mreasc odat cu apariia de noi sarcini deservicii, aprute ca urmare a creterii preteniilornormale ale populaiei, prin faptul c fiecare ef decompartiment i va crete numrul propriilorsubordonai, pentru a deveni mai important i mainecesar.

Aceasta cretere are loc de la baz, urmndtraseul unui arbore i este generat de ceea ce A.Mathiot denumea paranoia administraiilor.

Se impune concluzia de nedorit, i anume cadministraia public ar avea ca i caracteristic

principal sau ca menire, crearea de noi locuri demunc i nu de a satisface interesul public.

Astfel se va ajunge la o administraiesupradimensionat fals, bazat pe interese proprii.

Toate aceste instituii create de instituii s-au dovedit a fi o cheltuial imens pentru bugetulde stat deoarece nu s-a manifestat n obinerea derealizri financiare semnificative, care s acoperei s justifice eforturile materiale efectuate cunfiinarea i dotarea lor.

Extinderea aparatului birocratic public, s-arealizat din raiuni diverse care pot fi:

economice, conform crora cretereaeconomic necesit sporireacorespunztoare a numrului de posturi

pentru funcionarii publici; politice, datorate extinderii aparatului

birocratic, care permite clasei politicedominante s atrag noi angajai;

ideologice, posibiliti de ascensiune pescar politic.

O problem real o constituie faptul ca acestsistem administrativ este reticent la schimbare, nraport cu alte tipuri de sisteme.

Atitudinea conservatoare n administraie esteasigurat, att de funcionarii publici care vd nschimbare o ameninare a drepturilor proprii, ct ide situaia de monopol de care beneficiaz sistemuladministrativ n societate, care duce invariabil lameninerea poziiilor dobndite.

Serviciile publice doar cheltuiesc bani i nugenereaz venituri. Chiar i taxele i impozitele,amenzile, sau alte modaliti de venituri

ctigate, sunt de fapt rezultatul reglementat de

3 CONCLUSIONThe public administration tends to increase

with the appearance of new services tasks, thegrowth of normal claims of the population, the factthat each head of department will increase thenumber of their subordinates to become moreimportant and necessary.

This growth occurs at the base, following thepath of a tree and which is generated by A. Mathiottermed "paranoid public administration."

It imposes the undesirable conclusion,namely that government would like the mainfeature or purpose, creating new jobs and not tosatisfy the public interest.

This will produce an oversized fakeadministration, based on own interests.

All these "institutions established byinstitutions" proved to be a huge expense to thestate budget as it was expressed in obtainingsignificant financial achievements, coveringmaterials and efforts made to justify theestablishment and equipping them.

Expanding public bureaucracies has beenmade of various reasons which include:

economic, growth requires thecorresponding increase in the number of

posts for civil servants; political, due to bureaucratic expansion,

which allows the dominant political classto attract new employees;

Ideological, political scale growingopportunities.

A real problem is the fact that the

administrative system is reluctant to change, inrelation to other systems.

Conservative attitude of the administration isprovided, so public officials who see in a change athreat to their rights and the monopoly positionbenefited by the administrative system in thesociety, leading invariably to maintaining theacquired positions.

Public services just spend money and donttgenerates income. Even taxes, fines, or other"income" earned, are actually the result governed


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anumite legi i norme care sunt obligatorii pentru

ceteni.S lum de exemplu, cazul impozitului pecldiri. Probabil ar fi foarte puini aceia care dinresponsabilitate social ar considera oportun idin proprie iniiativ ar alege sa plteasc o sumntr-un cuantum chiar i ales de cetean, organelorstatului, doar pentru c e contient c aceste taxe iimpozite se folosesc pentru asigurarea serviciilor

pentru ceteni.Adevrul este c orice tax i impozit trebuie

s reflecte i un beneficiu pentru cel impozitat sauo obligaie, n cazul n care este o afacere.

Nemulumirea cetenilor pornete din faptulreal c nu ntotdeauna plata taxelor i impozitelorla zi aduce dup sine mcar o ameliorare a strii defapt. De exemplu taxa de drumuri, contribuie

pentru pensii, etc. Indiferent ct impozit i taxe sepltesc pentru drumuri, acestea sunt tot ntr-o stareproast.

n anul 2009 au fost identificate 558 deimpozite i taxe instituite printr-un numr de 185de acte normative. De altfel, comisarul LeonardOrban spune: "n evaluarea Comisiei Europeneexist 113 taxe n Romania, iar CE considera ceste cel mai mare numr de taxe existent nEuropa. Una dintre solicitrile n ceea ce privetestrategia Lisabona a fost reducerea semnificativ aacestor taxe, pentru c sunt unele taxe care constaumai mult n colectarea lor dect n ceea ce seaduce".( lorylex.wordpress.com, 2009)

De ce s nu recunoatem c puterea segestioneaz cel mai eficient prin intermediulbirocraiei iar oamenii se ateapt la proceduri ireguli clare i specifice atunci cnd comunicinstituional.

Se poate afirma c serviciile publice suntansambluri de persoane i lucruri create n vedereasatisfacerii unei nevoi publice de ctre colectivitate

public, supuse autoritii i controlului acesteia.La ora actual un sinonim al birocraiei este

administraia public.Legea lui Parkinson, formulat de analistul

englez C. Northcote Parkinson (1957), Volumul(cantitatea) muncii crete astfel nct s ocupeintegral timpul alocat pentru realizarea obiectivuluifixat".( C. N. Parkinson, 1955)

Aceasta ierarhizare birocratic i promovarea

se asociaz cu creterea personalului administrativ

by certain laws and rules that are compulsory for

citizens.Take the case of tax on buildings. Perhaps itwould be very few whom, from "socialresponsibility" consider desirable and from theirown initiative to pay a sum in an amount evenchosen by the citizens, to the state bodies, justbecause he is aware that the taxes are used to

provide services for citizens.The truth is that any duty and tax must reflect

a benefit for the one taxed or an obligation, if it is abusiness.

Dissatisfaction comes from the real fact that

not always paying the taxes on time brings anyimprovement of the situation. For example, roadtax, pension contribution, etc. No matter how manytaxes are paid for roads, they are all in a poorcondition.

In 2009 there were identified 558 taxesimposed by a number of 185 acts. In fact,Commissioner Leonard Orban said: "In theEuropean Commission assessment there are 113taxes in Romania and the EC considers that thehighest number of taxes existing in Europe. One ofthe requests in the Lisbon strategy was asignificant reduction of these fees because there aresome tax collection comprised more in collectingthem more than what they bring. "(lorylex.wordpress.com/2009/03/13/ce-cere-romaniei-sa-reduca-semnificativ-numarul-de-taxe-si-impozite/)

Why not recognize that power is mosteffectively managed through bureaucracy and

people expect clear and specific procedures andrules when institutionally communicating.

We can say that public services are sets of

people and things created to satisfy a public bypublic authority, subject to its authority andcontrol.

Nowadays bureaucracy is synonymous withpublic administration.

Parkinson's Law, formulated by the Englishanalyst C. Northcote Parkinson (1957) said"volume (quantity) of the work increases so that ittakes the full time allocated for the fixedobjective."( C. N. Parkinson, 1955)

The bureaucratic hierarchy and promotion isassociated with increasing administrative staff


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i fr a lua n considerare cantitatea sau calitatea

muncii sau a activitilor.Creterea procentual de personal ntr-ostructur de administraie public :

X=(100(2km + p)/yn)% , (1)

unde,X este numrul de personal nou solicitat annual;

k este numrul de personal ce ateapt promovareaprin angajarea de noi subordonai; p reprezintdiferena dintre vrsta angajrii i cea a pensionrii;m este numrul de ore/persoan necesare pentru arezolva problemele administrative din departament; n

este numrul de uniti efectiv administrate; yreprezint personalul iniial total .Aplicnd legea lui Parkinson, n perioade

diferite, se constat c personalul administraieipublice crete anual cu o proporie cuprins ntre5,17% i 6,56%, indiferent de variaia cantitii demunc .

Un calcul simplu ne arata ca birocraia prinpersonalul nou angajat, se dubleaz la fiecare 15ani.

O alt lege a lui Parkinson: incompetentul vaascunde propria incompeten prin mrirea

competenelor.Un funcionar public care nu este n stare sarezolve o sarcin, fiind incompetent, va solicita alifuncionari s rezolve aceast sarcin.

Un regulament lipsit de orice sens va fiaplicat de ctre funcionar, el gndind c sigur seva gsi un superior care s-l pedepseasc dac nuaplic regula chiar dac prin aplicarea ei va stricaceva, oricnd existnd posibilitatea ascunderiigreelii n spatele aplicrii legislaiei.

The Peter Principle, 1969, aplicat n oricestructur ierarhic, spune c fiecare individ va fi

promovat pn cnd va atinge nivelul lui personalde incompeten.Acest nivel al incompetenei se va atinge din

cauza faptului c la promovare nu se ine seama decerinele postului n concordan cu calitilesalariatului propus la promovare. Fiecare post deconducere presupune un anumit nivel decompeten, ntr-o anumit specializare. Faptul cun ef de compartiment a condus bine cei cca. 10oameni aflai n subordine, i a avut rezultatesemnificative, nu-i confer acestuia automatcalitile necesare pentru a coordona o direcie

format din cca. 50 de oameni.

without taking into account the quantity or quality

of the work or the activities.Increased percentage of staff in a publicadministration structure:

X = (100 (2km + p) / yn)%, (1)

where,X is the number of new staff required

annually; k is the number of staff waiting forpromotion by hiring new subordinates; p is thedifference between employment and retirementage; m is the number of hours / person required tosolve administrative problems in the department; n

is the number of units actually administered; y isthe total initial staff.

Applying Parkinson's Law, at different times,it appears that government staff with an annualincrease rate between 5.17% and 6.56%, regardlessof workload changes.

A simple calculation shows that bureaucracyby the new staff doubles every 15 years.

Another Parkinson's Law: incompetent to hidehis own incompetence by increasing skills.

A public official is not able to solve a task,

being incompetent, will ask other officials to solvethis task.

A meaningless regulation will be applied bythe official, thinking that surely he will find asuperior to punish him if the rule applies even if itsapplication will destroy anything, existing the

possibly of hiding the mistake behind the lawenforcement.

The Peter Principle, 1969, applied to anyhierarchical structure, says that each individual willbe promoted until he reaches his own level of

incompetence.This level of incompetence is reached becausethe promotion does not take into account the jobrequirements in accordance with the employeeskills proposed to promote. Each management

position requires a certain level of competence, tosome degree. The fact that a head of departmentwho led well about. 10 people with significantresults, not automatically has the skills needed tocoordinate a direction consisting of approximately50 people.


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n acest sens, considera c membrii unei

organizaii vor fi promovai pn la nivelul lormaxim de competen, dup care orice altpromovare ulterioar i va ridica la un nivel la caredevin incompeteni.

Concluzie : Ideal ar fi ca salariaii careexceleaz pe un anumit post care presupuneanumite competene s fie recompensai princreteri salariale i nu prin promovare.

Faptul c eti un bun profesionist n domeniultu de activitate nu te va face s devii un profesorcapabil s invei ceea ce tii, altfel spus de exemplun domeniul sportului, orice juctor ct de bun nu

va deveni la data retragerii un antrenorexcepional. Aici vor intervenii pe lngcunoaterea obiectului propriu de activitate ianumite caliti personale, pe care le dein, alii ledobndesc sau pur i simplu nu le dein.

Principiul lui Dilbert se refer la o teoriesatiric din anii 1990. Conform acesteia,companiile au tendina s promoveze cei mai slabiangajai n poziii de management, pentru a preveniafectarea experienei consumatorilor de ctrerespectivii angajai.

Termenul a fost introdus de ctre Scott

Adams, un absolvent de la Berkeley.Adams explic astfel: Cei mai ineficienilucrtori sunt transferai, n mod sistematic, ntr-ofuncie unde pot face cele mai mici pagube: nmanagement. E ca i cum am fi ntors regulilenaturii cu susul n jos, Identificm i promovmn mod sistematic oamenii cu cele mai slabedeprinderi.

Principiul lui Dilbert este o variaie aPrincipiului lui Peter.( ro.Wikipedia.org)

Aplicnd acest principiu oamenilor, ca irezultat al acestor teorii, este faptul c o persoan

care i atinge pragul de incompeten va gsi altelucruri de fcut pentru a se simi eficient, i se vorgsi efi dornici care s o promoveze, n nici uncaz nu-i va recunoate incompetena.

Interesante sunt cele 3 legi i cele 2 axiomeale lui Parkinson:

1. Prima lege a lui Parkinson Orice activitatese extinde att ct s umple ntregul timp afectatefecturii ei.

2. A doua lege a lui Parkinson Cheltuielilecresc att ct s egaleze veniturile.

3. A treia lege a lui Parkinson Expansiunea

nseamn complexitate i complexitatea decdere;

In this respect, consider that the members of

an organization will be promoted up to theirmaximum level of competence, and then any future

promotions will raise them to a level where theybecome incompetent.

Conclusion: Ideally, employees who excel in ajob that requires certain skills to be rewarded bysalary increases and not by promotion.

Being a professional in your field of activitywill not make you become a teacher able to teachwhat you know, that being said for example insport, any good player will not become a good a

coach after he retires. Knowing the the mainobjective of activity will intervene next to certainpersonal qualities, which they hold, others acquirethem or simply they do not possess them.

Dilbert's principle refers to a satirical theoryof the 1990s. According to this, companies tend to

promote the worst employees in managementpositions, to prevent damage to consumerexperience by those employees.

The term was introduced by Scott Adams, agraduate from Berkeley.

Adams explains: "The most ineffectiveworkers are transferred systematically, in aposition where they can lower the damage: themanagement. It's like I have turned the nature rulesupside down "," Identify and systematically

promote the people with the worst skills ".Dilbert's Principle is a variation of the Peter

Principle.( ro.Wikipedia.org)Applying this principle to the people, as a

result of these theories is that a person who reachesthe threshold of incompetence will find other

things to do in order to feel effective, and will findleaders willing to promote it, in any case will notrecognize incompetence.

Interesting are the three laws and twoParkinson's axioms:

1. Parkinson's first law - Any activity extendslong enough to fill the entire time affected to

perform it.2. Parkinson's Second Law - costs increase so

as to match income.3. Parkinson's Third Law - Expansion means

complexity and complexity decay, or, quite simply,


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sau, i mai simplu, cu ct mai complex, cu att mai

aproape de moarte.Axioma 1 O oficialitate dorete s-isporeasc subordonaii i nu rivalii.

Axioma 2 Oficialitile i dau de lucruunele altora.

n concluzie, fiecare structur birocratic esteformat sau din funcionari care aplicregulamentele fr s gndeasc sau dinfuncionari incompeteni care vor crea un numrnou de norme, proceduri i reguli prin care vorurmri s-i mreasc echipele.

n general, activitatea administraiei publice

este perceput de ctre ceteni ntr-un modnegativ, ea este n slujba proprie i nu deserveteinteresele generale ale cetenilor. De cele maimulte ori este vzut ca a fi corupt, puternicbirocratizat, avnd n structurile ei mai mulifuncionari incompeteni dect competeni.

Administraia local nu are specialitipregtii n toate domeniile administrrii locale, demulte ori posturile vacante se scot la concurs pespecialitatea persoanei care se dorete a fi angajat,nicidecum pe specialitatea respectivului post.

Faptul c administraia public deine

monopolul n furnizarea de servicii sau produsecare de obicei nu sunt solicitate de ctre ceteni, cide cele mai multe ori sunt taxe i impozite impusede ctre stat, dezvolt agresivitatea ceteanului dernd n faa funcionarului aflat la ghieu.

De ce, dac tot trebuie s pltesc taxelegiferate prin legi i ordonane, mai trebuie s fiui plimbat de la un ghieu la altul i tratat cuindiferena sau ngmfare? Sunt convins cfiecare dintre noi a apelat mcar o dat lainstituiile statului pentru a-i rezolva ceva, fie

pentru un drept sau o obligaie legiferat de stat.

Noi, cetenii, suntem liberi s gndim astfel:Am dreptul la alocaie pentru copil, dar de cepentru ca s-o primesc trebuie s completez i sdepun o grmad de acte?

De ce pentru a-mi construi o cas pe terenulproprietate, trebuie s obin certificat i autorizaiede construire, deci trebuie s depun documentaii is solicit acest lucru i s pltesc tot felul de taxestatului?

Nu neleg de ce trebuie sa pltesc impozitpentru maina mea personal, deoarece stareadrumurilor unde ar trebui s se simt aceast tax,

este din ce n ce mai proast, dar ca un bun

the more complex, the closer to death.

Axiom 1 - An official wants to increasesubordinates, not rivals.

Axiom 2 - Officials pass their work from oneto another.

In conclusion, every bureaucratic structure iscomposed of officials who apply regulationswithout thinking or from incompetent officials thatwill create a new number of criteria, proceduresand rules that will seek to expand their teams.

In general, public administration activity isperceived by citizens in a negative way, it is self

serving and not serving the general interests ofcitizens. It is often seen as being corrupt, highlybureaucratized, having in their structures moreincompetent than competent officials.

Local administration has specialists trained inall areas of local administration, often vacanciesare made on the specialty that person has preparedand wants to be hired, not the specialty of that

position.The fact that government has a monopoly in

providing services which are usually not required

by citizens, but often are taxes imposed by thestate, develops the aggressive behaviour of thecitizen towards the official on the counter.

Why, if you still have to pay taxes enacted bylaws and ordinances, and have to be walked fromone window to another and treated withindifference or pride? I am convinced that each ofus has turned to state institutions at least once tosolve something, either for a right or a stateenacted obligation.

We, citizens are free to think so:

Am I entitled to child benefit, but why forgetting it I must complete and submit a bunch ofpapers?

Why to build me a house on my property, Imust obtain a certificate and buildings permit, so Imust submit documentation and request it and payall kinds of state taxes?

I do not understand why I should pay taxes onmy own car because the roads where this taxshould be used are becoming worse, but as a goodcitizen I go to Finance, stand in lines, walk from awindow to another and, if I am "lucky", I manage


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cetean m deplasez la Finane, stau la cozi, m

las plimbat de la un ghieu la altul i, dac suntnorocos, reuesc s depun banii i, n funcie detratamentul primit de la funcionari, sunt binesau prost dispus toat ziua.

Mai sunt multe exemple de genul acesta,exemple reale din viaa de zi cu zi, lista rmnedeschis.

to deposit the money and, according to the

"treatment" received from the officials, I am in agood or bad mood all day.

There are many examples like that, realexamples from daily life, the list remains open.

BIBLIOGRAFIE / REFERENCES

Alexandru, I., Administraia public. Teorii, realiti,

perspective., Bucureti, Editura Lumina Lex, 1999,p. 293.

Androniceanu, A., Management public: studii de caz dininstituii i autoriti ale administraiei publice.Bucureti: Editura Universitara, 2004.

Bonnet, Fr., Management de ladministration, Paris,Editura De Boeck Universit, 1993, p. 47.

Buhler, K., Die Sprachtheorie, Encyclopedia od the

Social Scienties, vol III, New York and London,1934

Jacoby, H., The Bureaucrasation of the World,

Berkeley, CA: University of California Press, 1973.

Lane, F., Current Issues in Public Administration, 6thEdition. New York: Bedford/St. Martin: pag. 38-57.

Laski, H., Bureaucracy, Encyclopedia of the SocialSciences.

Marx, K., Hal Draper, Karl Marx's Theory of

Revolution, Volume 1: State and Bureaucracy. NewYork: Monthly Review Press, 1979.

Metcalfe, L., i Richards, S., Improving publicmanagement. 2nd. London, SAGE Publications,1993..

Moldoveanu, G., & Dobrin, C., Managementul calitii

n sectorul public. Bucureti, Editura ASE, 2003.Northcote, P., Parkinson's Law, or The Pursuit of

Progress, 1957.

Pareto V., Trait de sociologie gnrale, Paris, LibrairiePayot, 1919, p. 1306-1308

Schiavo-Campo S., Strenghtening Performance inPublic Expenditure Management, 1997

Stewart i Walsh, Performance Meausurement, 1994

Stillman R.J., Public Administration: Concepts & Cases,7/e & 8/e.

Stillman R.J, The American Bureaucracy, 1991.

Trice, H. M., Beyer, J. M., Studying OrganizationalCultures through Rites and Ceremonies, Academy ofManagement Review 9, 1984.

Weber, M., The Theory of Social and EconomicOrganization. Translated by A.M. Henderson andTalcott Parsons. London: Collier MacmillanPublishers, 1947.

Documents

BUREAUCRATIC MODEL IN THE PUBLIC ADMINISTRATION