PIA 2020. Introduction to Public Affairs Week Two: The Methodology of Comparing Public Systems
Revisit: Overview of this Session A. The Importance of Culture B. Dysfunctionalism C. Privatization D. History E. Reform
More Themes § Corruption and Civil Service Reform § Debates about Contracting § Comparative Methodology
Overview, Continued • Contemporary Policy Issues • Public Sector Debate: Weber vs. Marx • General and Enduring Features • Comparative Approach and Culture • Influences on the Policy Making Process
1. The Importance of Culture in Comparative Politics So far so good…. The Problem- Definition as the beginning of confusion 1. Method vs. Area Problem- The Comparative Politics core of 2. Strict definition: A method for crossnational comparison of political o 4 bureaucratic structure or behavior. 3. Often used as all public administration which is not American 4. Key: Focus Upon Bureaucracy in both a contemporary and a Historical Context helps us understand public affairs
The Critical Issue of Culture
What is the dominant cultural value in Terms of Access? a. Ascription b. Representation vs. achievement c. Values re. social and economic change or distribution d. What is the dominant cultural value? What is most important? e. Representation vs. Politics
Ascription
Nature of Interaction Access: 1. Access to government often through the bureaucracy 2. Nature of interaction a. Ascription vs. achievement b. Values re. social and economic change c. Ethnic, religious or racial privilege
ACCESS?
Comparative Public Management and Development: Macro-Theme Companion to Issues of Development Theory, Human Security, Policy, and Planning Critical to an understanding of International Relations and Security Policy
Summary: Comparative Public Policy 1. Comparative View of Public Affairs and Management and Relationship to the Policy Process 2. The role of the bureaucracy in politics- Bureaucrats do make policy 3. The relationship between the state, the state bureaucracy to non-profit organizations and economic development.
2. Bureaucracy and its Dysfunction- Author of the Day: PITT’s B. Guy Peters
Definition from Peters 1. Public Administration- Rule Application 2. Bureaucracy- Hierarchical organizations designed to utilize the enforcement of universal and impersonal rules to maintain authority 3. Public Policy- Key: Rule making as well as rule application
The Development Model ¡ Use of the Government to promote economic growth and development ¡ Thus importance of the Chambers Johnson book on MITI (Note: Ph. D Students) ¡ Japan as a "state guided Market economy“ ¡ Thesis- Economic Development involved an expansion of the official bureaucracy ¡ By Indirection- Focus on Africa, Caribbean, Latin America, South Asia and the Middle East
Ministry of International Trade and Industry and the Asia Model
A More Cynical View
Bureaucrat Bashing
The perennial tensions between official and personal norms in organizations ¡ ¡ The issue of the "bureaucratic experience, " (Hummel), that differs from the social (human) experience Hummel says "dehumanizing“ Standards and policies defined by the past and standardized for all ¡ e. g. people, as cases ¡
Bureaucrat Bashing as a Problem?
Peters Thesis dissected Thesis- Attacks the artificial dichotomy between politics and administration Problem- critics of "rational bureaucracy" say it is the end of politics eg. End of "all the kings men“ Goal- get into the magic "black box" of bureaucratic politics ¡A Great Film. More Later
Author of the Week Robert Klitgaard the president of Claremont Graduate University and his book on Corruption
Institutions and Corruption ¡ One View
Summary: The Importance of the Comparative Approach ¡ Cultural Dimension ¡ Contingency Approach (orgs. for prisons vs. research) ¡ Effects of diffusioncolonies and the world bureaucratic system ¡ Implementation- Hopes that are dashed in the doing
C. Privatization: Contracting and non-profits ¡ ¡ ¡ The Answer to Bad Governance, Corruption and Inefficiency This "neo-classical" model of development has been exported overseas Especially to the less developed and transitional states in Africa, Asia, Eastern and Central Europe and Latin America.
Critique: The So-called Nanny State
Contemporary Issue: Privatization and the Political Economy ¡ ¡ ¡ In the last decade, critics of the public service have argued that efficient government is small government. Privatization has been the order of the day. Eg. Private Security
Blackwater?
Debates about Contracting¡ ¡ ¡ Related to Bureaucrat Bashing Social Change and the Private Sector For profit privates and the nonprofit sector
Privatized Water Supplies
Privatization?
President International Stability Operations Association, Doug Brooks, GSPIA Ph. D Alum
Key: Issue of Relationship between government and the economy. ¡ ¡ ¡ Issue of Privatization Public-Private Partnerships- Including NGOs (The new buzz word). Note: John Armstrong's argument that education and training are critical variables in understanding “development" strategies in Western Europe and then Soviet Union. HRD not culture or structure defines economic systems
UNITED STATES DEPARTMENT OF TRANSPORTATION REPORT TO CONGRESS ON PUBLIC-PRIVATE PARTNERSHIPS
Bureaucracy, Organizations and Power ¡ ¡ The control of bureaucratic power, upon which comparisons of diverse bureaucracies can be valid. Reminder- The Use of History: Historical Kingdoms in Asia, Africa and Europe precursor to modern state system
D. Comparative Public Affairs (PA) and Administration: “Five Minute History” Preliminary Comments: 1. The History and Public Affairs: The Passage of Time is Important 2. The view from the rest of the world. That includes the U. S. 3. A discipline that is not 4. Origins in the Comparative Politics Movement
Historical Case Studies and Continuity of Themes China ¡ Egypt ¡ Rome ¡ Feudalism ¡ Africa ¡ Absolutism ¡ India, Empire and Britain ¡ Modern Europe ¡
China- Mandarins- c. 1500 BC Symbol: Elites a. Personalized Despotism b. Ministries/Departments with Officials c. Hierarchy of Authority a. Selection based upon competition b. General administration model
Many of the palaces were very much in the Chinese style. Vietnam was ruled by China for several hundred years, and adopted many of the Imperial Chinese practices (like the exam system, and mandarins).
Egypt- c. 1000 BC Symbol: Technical achievement a. Clerks and Scribes b. Architects, engineers c. Pyramids- craftsmen as elites d. Contemporary views in Egypt: Criticism includes bribery, corruption, over-standardization, red tape, extortion, laziness
The Principle of Building Pyramids-1
The Principle of Building Pyramids-2
Rome- 27 BC-476 AD Symbol: Taxes and Empire a. Revenue- system for Tax collection b. Distinguish: private vs. public personalities of head of state/ separation of resources of state from individuals c. Distinguished ruler from ruled d. Contemporary critique: Too large, inflexible, oppressive, over-centralized e. The Importance of Law
¡ Roman Law: The new code promoted the organization of public prosecution of crimes and instituted a system whereby injured parties could seek compensation in civil Disputes 1. Napoleonic Law 2. Roman Dutch Law 3. Common Law
Feudalism- 400 AD-1400 AD Symbol: Collapse a. b. c. d. Many power centers- myth of collapse Collapse of apparatus of central state- not all bad More developed state systems-Byzantium, North Africa and Asia Back to more traditionalist, fused systems at the end of the period (Resembled Africa)
Roland Pledges His fealty to Charlemagne
African Kingdoms: 800 -1800 Ghana- Hierarchical Monarchy Mali- Timbuktu and Higher Education Songhay- Imperial Grandeur Zimbabwe- Stone Architecture Zulu- Warfare and Totalitarianism
African Kingdoms: 1000 -1700
Songhai Empire, c. 1340– 1591
An African Traditional Leader Khama the Great- (C, 1837 -1923) Ian Khama Being Sworn In on April 1, 2008 (An African Democrat? )
Absolutism and the Nation-State, 1500 -1800: Western Europe and Scandinavia a. Return to Roman Ideal b. Royal Privileges c. Raise revenues: system of taxation, collectors back in business tax d. Mercentilism- wealth, based on state monopoly companies, basis of state power. Empire key to Expansion e. Modern origins of specialized administration- no longer members of the "king's household"-
Louis XIV, the Sun King ruled France from 1643 to 1715: Traditionalism
Prussia: Frederick the Great- 18 th century a. Administration as a university study - Cameralism (Chamber managing the public's business) b. Entrance Examinations c. Field Training (Internships) d. Critique: caste status of bureaucrat, aloof, exclusive and inflexible
Prussian Law: Cameralism is an economic theory in which public revenue is sole measure of national prosperity
India- Northcote-Trevelyn Report of 1854 BB (Before Britain) a. Result of Indian Mutiny b. Pattern of Recruitment- Career appointments, competitive examinations, and an end to patronage c. Early model of merit system
Empire: Sepoy Mutiny 1857
Coffee Break
Modern Europe- (Note John Armstrong)- 19 th Century England 1. Gentlemen generalists 2. Rotten boroughs and patronage 3. Sinecures- "bastard sons of the ruling class“ 4. Reform- merit, exams and elites 5. Colonial Administrators
Old Sarum U. K. By the 19 th Century, the village, Old Sarum, was officially uninhabited and yet still had formal parliamentary representation, making it the most notorious of the rotten boroughs that existed before the Reform Act of 1832
Sixteenth Century Europe
Public Affairs from a Comparative Perspective: Environmental Issues 1. Democracy and Governance 2. Legal, Behavioral, Fiscal 3. The Utility of Comparative Methodology 4. Intersection of Public Sector and Civil Society
The Debate about Institutions Origins of bureaucratic systems or The “Five Minute” History of Modern Public Administration” or understanding Max Weber and Karl Marx
Maximilian Carl Emil Weber (21 April 1864 – 14 June 1920)- The Big Man
Weber: The Importance of Democracy in the Delivery of Public Services Campaigning for the Weimar Constitution in Germany, 1919
Capitalism and the Protestant Ethic- And its Critics
The Norms, Beliefs, and Institutions of 21 st-Century Capitalism: Celebrating Max Weber's The Protestant Ethic and the Spirit of Capitalism Conference: October 8 -9, 2004
4. Traditional, Charismatic and Legal. Rational Models of Public Administration- Max Weber: 1864 -1920 ¡ Note: It was history that influenced the ideas of two late 19 th century intellectuals, Karl Marx and Max Weber 1. Myth- Bureaucracy as a neutral actor 2. Max Weber’s Theory- Three ideal types of administration- Max Weber's three models 3. Traditional, Charismatic and Legal Rational
Central Debate: Two Giants of Public Affairs and Public Service Max Weber- Both a social scientist and a politician 1. Concern for Values: So-called Protestant Ethic 2. Separation of bureaucracy and politics 3. Weimar Republic- Political Institutions Karl Marx- Both a social scientist and a revolutionary 1. Class- Dialectic Materialism (History) 2. Social and Withering Away of State 3. Russian Revolution After his Death
As a Social Scientist Karl Heinrich Marx (May 5, 1818 -March 14, 1883)
HISTORY: Marx Roman Slavery. Citizens vs. Slaves Feudalism. Capitalism. Bourgeoisie vs. Proletariat Socialism. Dictatorship of the Proletariat Communism ¡ The Dialectic and Historical Materialism
19 th Century Germany ¡ ¡ Prussia- law, authoritarian, hierarchical, and the German Intellectual Max Weber- Liberalism and the State- Influenced by the Prussian model of the state
Continental Europe 1. France- Revolutionary modelroutinization, Technical specialization 2. Iberia- Cartesian Models 3. Scandinavia/Benelux- Legal, then social model
Weber’s Traditional- Fused Administration 1. Looked back at China, Egypt, Rome and Africa 2. Fused System- magic, mystification and witchcraft 3. Key- gradual move to rational separation of King from government
Louis XIV, the Sun King ruled France from 1643 to 1715: Traditionalism
Poul Christian von Stemann, (April 14, 1764 – November 25, 1855) for twenty years the last ”prime minister” of Danish absolutism
French Revolution: “History, Nationalism and the Rule of Law”
Charismatic- Revolutionary and the Aftermath of French Revolution, 17891815 1. State identified with the movement and leader 2. Apex under Napoleon 3. Allegiance of civil servant to leader
Routinization of Charisma 4. Key: Routinization of Charisma -from leader, shift loyalties one step further to nation -basic ministries- finance, foreign affairs, War, Justice, Interior 5. French revolution- Continued emphasis on science and engineering
Institutions vs. Charisma?
Charismatic?
Gerald R. Ford?
No- Woodrow Wilson, Political Scientist and the Separation of Politics and Administration (Successor to Weber): Routinization of Charisma
Legal-Rational Model- Modernspecialized/technical: Characteristics: BASED ON “DEMOCRATIC “PRINCIPLES a. Merit Selection b. Hierarchy- Chain of Command
Legal-Rational Continued c. Division of Labor and functional specialization d. Administrative work: full time, no sinecures e. Contractual agreement f. Professional or technical training g. The Problem of Corruption
The British Administrator- 1875
One Example: Colonial Administration
However, Classic Colonial Image: Threat to Women and Children
E. Civil Service/Public Sector Reform
Civil Service Reform
Rutherford B. Hays, 1877 -1881 (Indian Affairs)
Civil Service Reform: Puck Political Cartoon
James A. Garfield Assassination July 2, 1881
U. S. A. Post-1883 Political Reforms- T Pendleton Civil Service Reform Act ¡ ¡ ¡ 1. Spoils, patronage and 1883 reforms. Selling jobs 2. Woodrow Wilson and Progressivism: Babies and Bathwater? 3. Dichotomy- politics and administration
Globalization ¡ U. S. Style?
U. S. A. Continued 4. Wilson Popularized Max Weber's ideas 5. Keynesianism and Good Government 6. Privatization, Free Trade and Small Government 7. Debate about Contracting Out
Debate. Thus Far: Further Reading ¡ Debates about Historical Epochs: Relevance to 21 st century problems (James C. Scott and John Armstrong) ¡ Debate about Political and Organizational Culture (Michel Crozier and Robert Klitgaard) ¡ Debates about Bureaucrat Bashing ( Lynn and Jay and Franz Kafka (1883 -1924) in the Castle)
Issues Thus Far: 1. Defining Comparative: Methodology, Theory, Case Study analysis (David Truman) 2. Public Administration vs. Public Policy and Management (administration vs. Politics dichotomy) (Ferrel Heady) 3. The Anti-Bureaucracy Machine: Comparative and International Issues (Picard)
All The Kings Men ¡ Studies in Italy in 1930 s ¡ Concern about the Rise of Fascism ¡ Huey Long, Father Charles Coughlin and Rev. Gerald L. K. Smith “Social Justice and Share the work” ¡ Robert Penn Warren
An Anti-Bureaucrat Politician Huey P. Long Governor and Senator, Louisiana “Every Man a King”
Huey Pierce Long, Jr. (August 30, 1893 -- September 10, 1935), nicknamed “The Kingfish”, was an American politician from the U. S. State of Louisiana. Cover Picture from Apr. 1, 1935
Next Three Weeks: The Problem: Social Transformation and Development (Marxism? ) ¡ ¡ Eg. Nicholas Lemann, The Promised Land. Black Migration and the Deep U. S. Fault Line Currently Dean of ¡ The School of ¡ Journalism, ¡ Columbia University ¡
Themes: Review 1. The Environment of Public Affairs 2. The Debate about Institutions 3. A Short “History” of Public Administration and Public Affairs 4. Traditional, Charismatic and Legal-Rational Models of Public Administration 5. Corruption and Civil Service Reform 6. Debates about Contracting 7. Review: Comparative Methodology
Discussion for This Week 1. Woodrow Wilson, “The Study of Administration” 2. Franz Kafka, “Bureaucracy” 3. Schiavo-Campo, “Good Governance”
Review of Issues ¡ Questions and Comments?
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