COMPARATIVE PUBLIC MANAGEMENT AND POLICY: …



COMPARATIVE PUBLIC MANAGEMENT AND POLICY: HISTORICAL MODELS

Mock Questions of the Week: “What is Comparative Public Administration? How does it differ from Comparative Management and Policy? To what extent is it an empirical system of knowledge development? What changes of emphasis have occurred in the field since the Second World War?” Be sure to refer specifically to the literature when you answer this question.”

"He knew something about human nature all right...It was, perhaps, a knowledge not of human nature in particular but his own nature in particular...In a way, he flattered human nature.[1] Discuss.”

I. Golden Oldie:

II. Comparative Public Administration Issues:

a. The politics-administration dichotomy

b. Environmental and cultural factors are important. Ecology and human factors are issues

c. Bureaucracy as a Negative? Keep government out of people's lives

d. Comparative as a method- structural-functionalist

e. Systemic influence on the individual- role definition, socialization and development of organizations vs. institutions

III. The Comparative Administration Group: (CAG)

1. Development Administration had its origins in C.A.G.- Focus on comparative and development administration. Bad reputation after 1975

2. Foundations and CAG- chalets in Italy to discuss administrative and political development

3. US AID and Universities- 3 out of every 4 dollars never left the U.S. Now .93 never leaves.

4. NIPAs, staff colleges and IDMs spring up all over Africa and Asia teaching Comparative and Development Administration

5. After 1975- Foundations pulled the plug

6. CAG- End of Ford grant, 1974. SICA Became part of American Society of Public Administration

7. Post-Vietnam syndrome: Withdrawals, Ayatollas, now nine-one-one

8. End of Development as a Northern Tier goal- circa: 1983

IV. End of Grants- End of Macro-Approach:

1. The Macro Approach: No Longer In Vogue

a. Systems building from Almond to Riggs

b. Almond's functions and Easton's black boxes

c. Theme- Look at common functions- focus on INSIDE processes of executive government

4. The Situation in 1975: Modified "traditional Approach"- A Micro and Meso level approach-- Most like an "orthodoxy" of public administration. Comparative Study of:

1. Parts of the System- budgeting, personnel, intergovernmental relations, policy process

2. Or whole systems- Britain vs. France, U.S. vs. Russia,

Botswana vs. Tanzania- Not Comparative

3. Things often done by different structures and processes: Examine a particular structure

4. Key:- Who makes rules

- who carries out, implements

- who makes budgets

5. Middle Range Theory: Mostly not.

a. Problem- largely non-theory

b. Focus on specific relationships: eg. bureaucracy and political and moral variables within a country

c. Mostly case studies- Egypt, Botswana, the U.S. All the same method. "The Case Study"

6. Critics: Lack of systems level theory: . Often turns out to be very specific: i.e. focused institutions

1. Ombudsman

2. Auditor General

3. Territorial Governor as rep. of national authority- the Prefectoral system

7. The Problem: Comparative studies of institutions are very expensive-run out of money/go back to case studies

V. Origins of bureaucratic systems: The “Five Minute” History or Understanding Max Weber

1. China- Mandarins- c. 1500 BC Symbol: Elites

a. Personalized Despotism

b. Ministries/Departments with Officials

c. Hierarchy of Authority

d. Selection based upon competition

e. General administration model

2. Egypt- c. 1000 BC Symbol: Technical achievement

a. Clerks and Scribes

b. Architects, engineers

c. Pyramids- craftsmen as elites

c. Contemporary views of Egypt: Criticism includes bribery, corruption, over-standardization, red tape, extortion, laziness

3. 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

4. Feudalism- 400 AD-1400 AD Symbol: Collapse

a. Many power centers- myth of collapse

b. Collapse of apparatus of central state- not all bad

c. More developed state systems- Byzantium, North Africa ,Sahel (Ghana, Mali, Songhay)

d. Back to more traditionalist, fused systems at the end of the period

5. Absolutism and the Nation-State, 1500-1800

a. Return to Roman Ideal

b. Royal Privileges

c. Raise revenues: system of taxation, tax collectors back in business

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"-

6. Prussia: Frederick the Great- 18th 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

7. 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 patonage

c. Early model of merit system

8. Modern Europe- (Note John Armstrong)

a. England- Gentlemen generalists

1. Rotten boroughs and patronage

2. Sinecures- "bastard sons of the ruling class"

3. Reform- merit, exams and elites

b. France-

1. Revolutionary model- routinization

2. Technical specialization

c. Scandinavia/Benelux- Legal, then social model

d. Germany- Prussia- law, authoritarian, hierarchical, and the German Intellectual-

Max Weber- Liberalism and the State- Influenced by the Prussian model of the state

Note: It was history that influenced the ideas of two late 19th century intellectuals, Karl Marx and Max Weber

1. Myth- Bureaucracy as a neutral actor

2. Theory- Three types of administration- Max Weber's three models:

a. Traditional- Fused

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

b. Charismatic- Revolutionary and the Aftermath of French Revolution, 1789-1815

1. State identified with the movement and leader

2. Apex under Napoleon

3. Allegiance of civil servant to leader

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- emphasis on science and engineering

c. Legal-Rational Model- Modern:

specialized/technical: Characteristics

a. Merit Selection

b. Hierarchy- Chain of Command

c. Division of Labor and functional specialization

d. Administrative work: full time, no sinecures

e. Contractual agreement

f. Professional or technical training

g. Fixed salaries

h. Formal framework of rules and procedures

i. Written records and files

j. Separation of office from incumbent- bureau from the occupant. eg. the Bureaucrat

e. The U.S.

1. Spoils, patronage and 1883 reforms. Selling jobs

2. Woodrow Wilson and Progressivism: Babies and Bathwater?

3. Dichotomy- politics and administration

4. Popularized Max Weber's ideas

5. Keynesianism and Good Government

6. Privatization, Free Trade and Small Government

Epilogue: Lets discuss each of the following quotes:

"There are several ways in which the government has influenced the structure of Japan's special institutions."[2]

"What is lawful and therefore is unlawful, depends on the culture and the country in question."[3]

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[1] Robert Penn Warren, All the Kings Men (New York: Harcourt Brace, 1946), p. 74.

[2] Chalmers Johnson, MITI and the Japanese Miracle (Stanford: Stanford University Press, 1982), p. 14.

[3] Robert Klitgaard, Controlling Corruption (Berkeley: University of California Press, 1988), p. 3.

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