PIA 2020 Introduction to Public Affairs From Administrative Patterns to Managing Budgets and Money Week 10

Organizations and Administrative Culture: Overview Socialization and Bureaucratic Behavior The Concept of political and Administrative Culture A mixture of elite and mass culture

The Concept Organizational Culture is a sub-set of broader cultural assumptions In looking for evidence of a political or an administrative culture we are looking for a set of representative values for the people of that society

The Concept of Political Culture a. People are tied to a unique web of historical experiences b. Assumption: From the general culture one can extract out the salient aspects of that culture that relate to political behavior and organizational and administrative traditions

Political Culture

The American Value System?

China Image: Does Political Culture Make a Difference?

Swedish Political Culture

Swedish Ombudsman

Emperor and Empress of India: Why are British Colonies Different?

Pakistan: Muslim League Leaders – Issue of Secularism?

Danish Peasant Culture: The Happy Scandinavians?

Review of Principles of Administrative Behavior Political Culture can predict political behavior Culture limits the action of citizens and administrators, channels demands and excludes certain possible policy options Changing the Organizational Culture Reforms the Organization

Organizational Culture as a Sub-Political Culture?

Organizational Culture: The Ideal Type

An Example- Danish Political Culture: Re An Example- Danish Political Culture: Re. Housing Organizational Sub-Cultures Groups 1, 2 and 4 constitute the traditional political culture, also found in the labour movement, Groups 3 and 6 constitute a user-oriented political culture based on functional participation in single issues; whereas group 7 contains the very active political elite.

Culture and Behaviro: Values and Motivation Money (Theory X) vs. Human Relations (Theory Y)

Motivation and Organizations 1. Theory X vs. Theory Y= Theory Z (Douglas McGregor) 2. Maslov’s Hierarchy: Basic needs, social needs and ego needs 3. Application of Theories of Motivation outside the U.S. Case Study (China, Korea, South Africa and Brazil) 4. The Special problem of Fragile and Collapsed states. 5. The Importance of a Motivation Theory in a Country Such as Guinea Conakry (Failed state with ethnic zero-sum game)

An Organizational Culture: Compared with what? Guinea Conakry: Picard Studies, 1991 and 2008 Guinea’s Prefect as a Rent-Seeking Predator

Remember Maslov’s Hierarchy of Needs

The Impact of Organizations

Socialization and Values Implications for Organizations

Socialization 1. Process by which political attitudes are formed and maintained 2. Acquisition of values, beliefs, and knowledge about the political system on both the individual and community level 3. Cultural transmission across generations- the introduction of new generations to the beliefs and values of the old

Socialization: Impact on Values and Culture

Levels of Socialization a. Primary- Most important: occurs within the family b. Secondary- Everything else before adulthood, school, peers, national and regional- it is here that cultural engineering occurs c. Tertiary- Professional and Organizational- Begins with University. Issue how specialization of bureaucratic elites is related to socialization and education

Socialization- Continued Can be a conscious or an unconscious effort- as to how attitudes towards policy are formed Issue of Cultural Engineering- Ideological and explicit Revolutionary & Developmental Societies- Ideological and explicit

Socialization- Continued U.S. and Western Europe- mostly indirect (Instrumental and implicit) Often hidden within a pragmatic, fairly loose value system Versus explicit and non-voluntary

Cultural Engineering?

The Crux of the Issue Socialization: Mass vs. elite (vs. Organizational) socialization At the heart of organizational culture Does Social Engineering Make a Difference The Crux of the Issue

Return to the Question Can we Reform or Reinvent Government and Financial Management given Premises about Culture, Socialization and Organizational Development?

Focus: The Fiscal and Budget Process Second Theme for the week: “Its all about the money.” Is Money a Cultural Issue? Bureaucracies, Budgets, Financial Management and Decision-Making

How Purposeful? Understanding the Budget

Decision-Making Models and Spending: An Overview of Concepts Rational- Comprehensive Standard Operating Procedures (SOPs) Bureaucratic Politics Group Think Satisficing/Incrementalism Cybernetic Theories (chaos theory) Decision-Making and Financial Management (The Hub of the Debate)

Decision-Making and Budgets Themes and Definitions

1. Rational Model Comprehensive Approach Optimal for achieving a goal or solving a problem. Determining optimality for rational behavior Complete Availability of Information

Zero Based Budgets

2. Standard Operating Procedures- SOPs

Standard Operating Procedures Pre-defined steps and activities of a process or procedure. An SOP provides employees in an organizational set of actions response to common external practices, activities, or tasks. Established Procedures

SOPs- Scientific Origins

3. Bureaucratic Politics Officials are motivated by the need to promote their own organizations special interests in Competition with other Agencies in the decisions that they make “Defending their Turf” “Staying in Your Own Lane”  

Bureaucratic Norms?

Bureaucrat Bashing as a Problem?

Bureaucratic Politics Military Phrase:

4. Group Think Group members, fearing to upset the leader, try to minimize conflict and reach a consensus decision without critical evaluation of alternative ideas or viewpoint

Victims of Group Think?: Irving Janis (Vietnam)

5. Satisficing/Incrementalism Satisficing is a decision-making strategy that attempts to meet an acceptability threshold (first available option) at a very low level of analysis (Herbert Simon) Incrementalism is a method of working by adding (or subtracting) to a project using many small (often unplanned) changes Standard Budget Process

Graham Allison: Org. Theory (Rational, Bureaucratic and SOPs) Cuban Missle Crisis Kennedy Center, Harvard Born, March 23, 1940

Satisficing/Incrementalism

Incrementalism

6. Cybernetic Theories vs. Chaos Cybernetic Theories:  Causal chains of action that move from action to sensing to comparison with desired goal, and again to action (Models based on electricity, mechanics, or machines) Chaos: Small differences in initial conditions (such as those due to rounding errors in numerical computation) yield widely diverging outcomes

Cybernetics

Chaos

7. Decision-Making and Financial Management A Review of Themes

Themes a. Budget: Recurrent vs. Capital (Development) Budgets b. Financial Management- Incrementalism and Satisficing vs. Zero Based Budgeting (Planning Systems) c. Accounting- Cost and Benefit vs. profit and loss (vs. Bookeeping)

Themes d. Auditing vs. Accountability- Quantitative vs. Qualitative e. Evaluating- Assessment vs. Judgement f. Budgeting: Two themes- Reforming and Decision-makin g. Program vs. Project Budgets

The British and Spending The Hospital

Acounting vs. Acountability

Decision-Making and Financial Management (Review of Issues and Authors) 1. Privatization and Contracting Out- Commercialization and intra-governmental competition (E.S. Savas) 2. Economic Bureaucracy, Public Sector Management: An Asian Model? (Chalmers Johnson) 3. End of the Third World? End of Development Budgets (SAPS) (Nigel Harris)

The Asian Model Issue: Capital vs. Developmental

Decision-Making and Financial Management 4. Imbalance- Political vs. Bureaucratic Development in the role of financial management (The Corruption Problem) (Ferrel Heady) 5. Values and Education, money and Bricks- Development Management (John Armstrong) 6. International Organizations, NGOs and Development (Contracts vs. Grants) (Paul Nelson)

Bureaucracy and the Danger of Corruption- World Patterns

Author of the Week Robert Klitgaard the president of Claremont Graduate University and his book on Corruption

Decision-Making and Financial Management 7. Private Sector Development vs. Development Management: The role of public sector financial management (Oversight) (Mark Turner and David Hulme) 8. Public Sector Reform (Guy Peters and Michael Barzelay) 9. (Planning vs. Budgeting) Naomi Caiden and Aaron Wildavsky- 10. Is Budgeting and financial management impacted by Group Think? (Irving Janis)