PIA 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 core of Comparative Politics 2. Strict definition: A method for cross- national comparison of political o4 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: PhD 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  A Great Film- More Later 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

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

Institutions and Corruption  One View One View

Summary: The Importance of the Comparative Approach  Cultural Dimension  Contingency Approach (orgs. for prisons vs. research)  Effects of diffusion- colonies 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 non- profit sector

Privatized Water Supplies

Privatization?

President International Stability Operations Association, Doug Brooks, GSPIA PhD 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 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 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. Many power centers- myth of collapse b. Collapse of apparatus of central state- not all bad c. More developed state systems-Byzantium, North Africa and Asia d. Back to more traditionalist, fused systems at the end of the period (Resembled Africa)

Roland Pledges His fealty to Charlemagne

African Kingdoms: Ghana- Hierarchical Monarchy Mali- Timbuktu and Higher Education Songhay- Imperial Grandeur Zimbabwe- Stone Architecture Zulu- Warfare and Totalitarianism

African Kingdoms:

Songhai Empire, c.1340–1591

An African Traditional Leader Khama the Great- (C, ) Ian Khama Being Sworn In on April 1, 2008 (An African Democrat?)

Absolutism and the Nation-State, : Western Europe and Scandinavia 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"-

Louis XIVLouis XIV, the Sun King ruled France from 1643 to 1715: Traditionalism

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

Prussian Law: Cameralism is an economic theory in which public revenue is sole measure of national prosperity

India- Northcote-Trevelyn Report of 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 19th 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 21st-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:  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. 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  The Dialectic and Historical Materialism Roman Slavery- Citizens vs. Slaves Feudalism- Capitalism- Bourgeoisie vs. Proletariat Socialism- Dictatorship of the Proletariat Communism

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 model- routinization, 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 XIVLouis 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, 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 Legal-Rational Model- Modern- specialized/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, (Indian Affairs)

Civil Service Reform: Puck Political Cartoon

James A. Garfield Assassination July 2, 1881

U.S.A. Post-1883 Political Reforms- TPendleton 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

DebateThus Far: Further Reading  Debates about Historical Epochs: Relevance to 21st 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 ( ) 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 1930s  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, 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?