Introduction to Public Introduction to Public AffairsAffairs

PIA 2000PIA 2000

The Structure and Process The Structure and Process of Bureaucracies- First Cutof Bureaucracies- First Cut

Bureaucrats, Regulations and Political Bureaucrats, Regulations and Political InstitutionsInstitutions

Lobbyists, Networks and PressuresLobbyists, Networks and Pressures

Debates about Public Sector ReformDebates about Public Sector Reform

Dealing with CorruptionDealing with Corruption

Prologue: An Overview Prologue: An Overview of Public Sector Reformof Public Sector Reform

A New Debate? A 1930s A New Debate? A 1930s CartoonCartoon

An Anti-BureaucratAn Anti-Bureaucrat

VideoVideo

Father Charles CoughlinFather Charles Coughlin

Reform Epochs: A Reform Epochs: A ReminderReminder

1616thth Century France: Separation of King from retainers. Century France: Separation of King from retainers. Creation of BureaucracyCreation of Bureaucracy

1818thth Century Prussia: Cameralism- Defined civil Century Prussia: Cameralism- Defined civil administrators in public and Corporate Sectoradministrators in public and Corporate Sector

Nineteenth Century: British India and British Reforms: Nineteenth Century: British India and British Reforms: Selection by Examination and Interview Selection by Examination and Interview

Late Nineteenth and Early Twentieth Century U.K. and U.S.: Late Nineteenth and Early Twentieth Century U.K. and U.S.: Civil Service Reform: Ending the SpoilsCivil Service Reform: Ending the Spoils

Last Part of the Twentieth Century: Structural Adjustment Last Part of the Twentieth Century: Structural Adjustment

Rembrandt's paintingRembrandt's painting“The Mercantilists”“The Mercantilists”

Bureaucracies, Politicians Bureaucracies, Politicians and Clientsand Clients

Overall Themes of the Next Several Weeks: Overall Themes of the Next Several Weeks:

1.1. Characteristics of BureaucraciesCharacteristics of Bureaucracies

2.2. Explaining Bureaucratic BehaviorExplaining Bureaucratic Behavior

3.3. Clients: The comparative advantage of the "Iron Triangle" model Clients: The comparative advantage of the "Iron Triangle" model (Executive Bureaucracy, Congress and Staff and Lobbyists). (Executive Bureaucracy, Congress and Staff and Lobbyists).

4.4. Clients and Democracy: The Power of the Lobbyist Clients and Democracy: The Power of the Lobbyist

5.5. Corporatism as the Alternative Concept (Conspiracry?)Corporatism as the Alternative Concept (Conspiracry?)

6.6. Evaluating Reform and Understanding behaviorEvaluating Reform and Understanding behavior

Two Views of BehaviorTwo Views of Behavior

The Problem:The Problem:

InefficiencyInefficiency

CorruptionCorruption

Interest InfluenceInterest Influence

AuthoritarianismAuthoritarianism

Lincoln and the Lincoln and the Accusation of PatronageAccusation of Patronage

Kenya Poster: A Kenya Poster: A ReminderReminder

How to Reform:How to Reform:

Organizational and Administrative Reform Organizational and Administrative Reform (Motivation and Communication)(Motivation and Communication)

Civil Service Reform (Recruitment)Civil Service Reform (Recruitment)

Fiscal Reform (Spending and Ownership)Fiscal Reform (Spending and Ownership)

Policy Reform (Law and Order vs. Policy Reform (Law and Order vs. Development)Development)

Modern Reforms: U.S. Modern Reforms: U.S. ModelModel

U.S. Civil Service Reform: 1883: End of U.S. Civil Service Reform: 1883: End of SpoilsSpoils

Hoover Commissions: 1940s and Hoover Commissions: 1940s and 1950s (Admin. Reform)1950s (Admin. Reform)

New Public Administration: Advocacy New Public Administration: Advocacy Reform and Affirmative ActionReform and Affirmative Action

Structural Adjustment: Debt Structural Adjustment: Debt Management and Privatization- Management and Privatization- Internationalized ReformInternationalized Reform

New Public Management: Customers New Public Management: Customers and Clientsand Clients

Clients: The Role of Clients: The Role of GroupsGroups

The Role of GroupsThe Role of Groups

Reform PerspectiveReform Perspective

Extent of access to public sectorExtent of access to public sector

Iron TriangleIron Triangle

Problem of Illicit Access Problem of Illicit Access

The Iron Triangle and the The Iron Triangle and the Revolving DoorRevolving Door

Group Influences-Five Group Influences-Five Models:Models:

1. Japan/Asia- Johnson's perspective (State Centric 1. Japan/Asia- Johnson's perspective (State Centric Planning and one way movement)Planning and one way movement)

2. Europe- (Orwell, Greene, Ferrel Heady 2. Europe- (Orwell, Greene, Ferrel Heady (Representation vs. Corporatism)(Representation vs. Corporatism)

3. U.S.- Pluralism vs. Elite Theory (Dahl vs. C. Wright 3. U.S.- Pluralism vs. Elite Theory (Dahl vs. C. Wright Mills)Mills)

4. Latin America: Military Corporatism and Patron 4. Latin America: Military Corporatism and Patron Client RelationshipsClient Relationships

5. Africa/Middle East: Crony Capitalism5. Africa/Middle East: Crony Capitalism

Peronism vs. ChilePeronism vs. ChileVideo:

Pluralist vs. ControllingPluralist vs. Controlling

Power Elite- ClassPower Elite- Class Pluralist Pluralist (Competitive)(Competitive)

LDCsLDCs

An absence of "clients" or Too many?An absence of "clients" or Too many?

The Role of patronage, corruption and Crony The Role of patronage, corruption and Crony capitalism.capitalism.

-Indonesia-Indonesia-Korea-Korea-West Africa-West Africa-China-China-U.S.?-U.S.?

Crony CapitalismCrony Capitalism

ISSUE:ISSUE:

Public Interest vs. private interests Public Interest vs. private interests (and the bureaucracy as an interest (and the bureaucracy as an interest group)group)

Question: Is there such a thing as a Question: Is there such a thing as a Public Interest Group? (PIG)Public Interest Group? (PIG)

NGOs: Public, private or Ideological?NGOs: Public, private or Ideological?

Clients and Clients and DemocracyDemocracyJohn Q. PublicJohn Q. Public

Is there such a person?Is there such a person?

Major themes in Major themes in Comparative Public Comparative Public Administration-Administration-

Administrative Structures and Society-Administrative Structures and Society-

I. An Individualist view of state-society relationshipsI. An Individualist view of state-society relationships

a. Common law view of society;a. Common law view of society;

b. Anglo-Saxon model: law and order as b. Anglo-Saxon model: law and order as basic function of government; basic function of government;

c. Society made up of individuals- c. Society made up of individuals- liberalismliberalism

Classical LiberalismClassical Liberalism

Classical Liberalism?Classical Liberalism?

Partisanship, Democracy Partisanship, Democracy and Bureaucracy- A and Bureaucracy- A ReminderReminder

a. Fused vs. Separation of Powers “Yes a. Fused vs. Separation of Powers “Yes Minister” (Britain)Minister” (Britain)

b. Cabinet Government vs. Presidential b. Cabinet Government vs. Presidential Systems- Collective Responsibility (U.S. Systems- Collective Responsibility (U.S. Latin America and France- Mixed)Latin America and France- Mixed)

c. Legislatures- Committee systems, c. Legislatures- Committee systems, Groups and bureaucratic authorityGroups and bureaucratic authority

Liberalism or Not Liberalism or Not LiberalismLiberalism

Administrative Structures Administrative Structures and Societyand Society

II. Statist view of Society- Collectivist (Frances II. Statist view of Society- Collectivist (Frances FitzGerald- FitzGerald- Fire in the LakeFire in the Lake on Vietnam)- Four Views on Vietnam)- Four Views

a. Idea of an active, creative state, a. Idea of an active, creative state, development oriented (Keynes)development oriented (Keynes)

b. Marxist-Leninist model- communitarianb. Marxist-Leninist model- communitarian

c. Corporatist idea of society as groups- civil c. Corporatist idea of society as groups- civil service as a group (Western Europe)service as a group (Western Europe)

d. Focus- Group Mobilizationd. Focus- Group Mobilization

Corporatism as the Alternative Concept- Corporatism as the Alternative Concept- Groups and Leadership Francisco FrancoGroups and Leadership Francisco Franco

Mobilization of Working Mobilization of Working ClassClass

The Power of the GroupThe Power of the Group

AuthoritarianismAuthoritarianism

Authoritarian systems- Authoritarian systems- Structures absent to Structures absent to protect citizens from fused protect citizens from fused state and bureaucracystate and bureaucracy

Non-Constitutional Non-Constitutional Systems: Military Regimes Systems: Military Regimes and One Party States- and One Party States- Politicized bureaucracy Politicized bureaucracy

Rent Seeking, Nepotism Rent Seeking, Nepotism and Corruptionand Corruption

Evaluating Reforms?Evaluating Reforms?

Political Structures and Political Structures and Public Management ThemesPublic Management Themes

1. Issues of Governance, Interests 1. Issues of Governance, Interests and Political Developmentand Political Development

2. The Administrative State Problem: 2. The Administrative State Problem: Weak Political controls and a strong Weak Political controls and a strong bureaucratic elitebureaucratic elite

Control: How to vs. Control: How to vs. Should one?Should one?

Political Structures and Political Structures and Public ManagementPublic Management

III. Elite vs. egalitarian views of public service. (A III. Elite vs. egalitarian views of public service. (A Reminder)- Interests within the State)Reminder)- Interests within the State)

a. Maximum Deferred Achievement (No a. Maximum Deferred Achievement (No pre-selection)pre-selection)

b. Maximum Ascriptive Model (Class b. Maximum Ascriptive Model (Class based)based)

c. Progressive Equal Attrition Model c. Progressive Equal Attrition Model Egalitarian- Professional- collectivistEgalitarian- Professional- collectivist

The Process: The Process: Images of Images of RecruitmentRecruitment

Coffee BreakCoffee Break

Ten MinutesTen Minutes

Video: The Ministry of Silly Walks

Political Structures and Political Structures and Public ManagementPublic Management

1. Structure of Civil Service Systems: The role of 1. Structure of Civil Service Systems: The role of Mandarins and political penetration into the civil Mandarins and political penetration into the civil serviceservice

2. Decayed and Transferred Institutions: (Kings 2. Decayed and Transferred Institutions: (Kings and Colonies)- The creation of an organizational and Colonies)- The creation of an organizational bourgeoisie (Irving Markovitz)bourgeoisie (Irving Markovitz)

3. Corporatist Systems can be royalist, military, 3. Corporatist Systems can be royalist, military, social (Spain, Argentina, Scandinavia)social (Spain, Argentina, Scandinavia)

The Myth: Classical Non-The Myth: Classical Non-PartisanismPartisanism

The Politics/Administration Dichotomy: The Politics/Administration Dichotomy: The Role of Non-Partisan Movements and The Role of Non-Partisan Movements and Generic ManagementGeneric Management

POSDECORB (Luther Gulick)POSDECORB (Luther Gulick)

(Planning, Organizing, Staffing, Directing, (Planning, Organizing, Staffing, Directing, Coordinating, Reporting, and Budgeting)Coordinating, Reporting, and Budgeting)

How Neutral?How Neutral?

Differences between the public and Differences between the public and the private sector- How much, or the private sector- How much, or how little?how little?

1. No significant differences between 1. No significant differences between personnel in large private vs. public personnel in large private vs. public organizationsorganizations

2. Differences in the structures within 2. Differences in the structures within which the individual has to workwhich the individual has to work

3. The bureaucracy is an institution of 3. The bureaucracy is an institution of governmentgovernment

Government: Differences Government: Differences from the private sector-from the private sector-

Difference in ProductDifference in Product

4. Private- emphasis is on profit, economy 4. Private- emphasis is on profit, economy and efficiencyand efficiency

5. Public- need to account for the political 5. Public- need to account for the political and social- not what is always efficientand social- not what is always efficient

6. Issue- motivation or its absence in the 6. Issue- motivation or its absence in the public sectorpublic sector

Recruitment: The Only Recruitment: The Only Game in Town (for Reform)Game in Town (for Reform)

KEY: The recruitment of professionals and KEY: The recruitment of professionals and specialists contradicts with the issue of political specialists contradicts with the issue of political controlcontrol

a. Problem- management, eg. the a. Problem- management, eg. the Department, Department, often does not control often does not control recruitmentrecruitment

b. Legislation sets the rules- merit system b. Legislation sets the rules- merit system with with civil service commission overseeing the civil service commission overseeing the processprocess

c. Civil Service Commission or Office of c. Civil Service Commission or Office of Personnel acts as an intermediaryPersonnel acts as an intermediary

THE PROBLEMTHE PROBLEM

Management of the public sector Management of the public sector organization is separated from the organization is separated from the major management functions-major management functions-

eg. promotion, firing, discipline, eg. promotion, firing, discipline, collective bargainingcollective bargaining

The Bottom LineThe Bottom Line

Government Has Government Has THETHE Monopoly of Monopoly of Power (Ultimately Life and Death)Power (Ultimately Life and Death)

Basic Principles?Basic Principles?

The Bureaucracy is an institution of The Bureaucracy is an institution of governmentgovernment

a. The public bureaucrat has greater a. The public bureaucrat has greater recourse to sanctions than the privaterecourse to sanctions than the private

b. Only partly true- the credit card b. Only partly true- the credit card company and the collection agencycompany and the collection agency

Origins of bureaucratic Origins of bureaucratic powerpower

a. Bureaucracy is largely autonomous, only a. Bureaucracy is largely autonomous, only 10% of actions controlled by politicos10% of actions controlled by politicos

b. Actions are seldom subjected to political b. Actions are seldom subjected to political or judicial reviewor judicial review

c. Problem of bureaucratic lethargy- resists c. Problem of bureaucratic lethargy- resists changechange

Lethargy (Dong Eun Kim)Lethargy (Dong Eun Kim)

Origins of bureaucratic Origins of bureaucratic power-2power-2

d. Bureaucracies are COMPLEX d. Bureaucracies are COMPLEX ORGANIZATIONS and are difficult to controlORGANIZATIONS and are difficult to control

e. Bureaucrats have the market cornered e. Bureaucrats have the market cornered on expertiseon expertise

f. Bureaucrats play "bureaucratic politics" f. Bureaucrats play "bureaucratic politics" behind the politicians' backsbehind the politicians' backs

Bureaucratic Method: Bureaucratic Method: U.K.U.K.

The political implications The political implications of role theory of role theory

ROLE SETS (Robert Merton)ROLE SETS (Robert Merton)

Role Conflict in the bureaucracyRole Conflict in the bureaucracy

Role vs. Status vs. IndividualsRole vs. Status vs. Individuals

Role Theory: Animal Role Theory: Animal Behavior?Behavior?

The bureaucrat can have a The bureaucrat can have a complex set of interpersonal complex set of interpersonal relationships relationships

1. Analyst and advocate

2. Planner

3. Managers and lobbyists

4. Professional and employee

5. Citizen

6. Spouse and Parent

Bureaucratic Norms?Bureaucratic Norms?

Theories of BehaviorTheories of Behavior

Rational Behavior and Decision-MakingRational Behavior and Decision-Making

Standard Operating Behavior (SOPs)Standard Operating Behavior (SOPs)

Bureaucratic Politics- Turf and ControlBureaucratic Politics- Turf and Control

Group ThinkGroup Think

Graham Allison: Org. Graham Allison: Org. TheoryTheoryKennedy Center, HarvardKennedy Center, Harvard

Born, March 23, 1940Born, March 23, 1940Cuban Missle CrisisCuban Missle Crisis

The Rights of the The Rights of the BureaucratBureaucrat

The role of Unions and strikes in the The role of Unions and strikes in the public servicepublic service

Restrictions on political activity, eg. Restrictions on political activity, eg. the Hatch Act in the U.S.the Hatch Act in the U.S.

Secrecy, Clearance and Whistle Secrecy, Clearance and Whistle BlowingBlowing

Hatch ActHatch Act

1833-1896

Possible DiscussionPossible Discussion

V. S. Naipaul, In a Free StateV. S. Naipaul, In a Free State

Robert Penn Warren, All the King’s MenRobert Penn Warren, All the King’s Men

Daniel Okrent, Last CallDaniel Okrent, Last Call

C. Wright Mills, The Power EliteC. Wright Mills, The Power Elite

James Lemann, The Black MigrationJames Lemann, The Black Migration

V.S. Naipaul: Born 17 V.S. Naipaul: Born 17 August 1932August 1932

Significance of Stories?Significance of Stories?

C. Wright Mills, The C. Wright Mills, The Power Elite (1916-1962)Power Elite (1916-1962)

Mills commuted to Columbia Mills commuted to Columbia College on his motorcycle, 1950sCollege on his motorcycle, 1950s

How Valid?How Valid?

Daniel Okrent, Last Call Daniel Okrent, Last Call (Note New Ken Burns Film)(Note New Ken Burns Film)Video: The Last Call

Born, April 2, 1948Born, April 2, 1948 Why is Booze Important?Why is Booze Important?

Next WeekNext Week

Robert KharaschRobert Kharasch

Jamil JriesatJamil Jriesat

Nadine GordimerNadine Gordimer

Revisit: Naipal, Penn Warren, Lemann Revisit: Naipal, Penn Warren, Lemann (What did you learn?)(What did you learn?)