1. The Norwegian Central Administrative System – Development Features and Principles of Organization Professor Tom Christensen, Department of Political Science, University of Oslo Presentation at University of Zagreb, May 29., 2013

2. 1. Questions to be focused on1. Questions to be focused on What are some of the development features of the Norwegian central administration?What are some of the development features of the Norwegian central administration? What are the driving forces?What are the driving forces? What are some of the challenges in the system?What are some of the challenges in the system? How does the system compare to other administrative systems – typical Norwegian?How does the system compare to other administrative systems – typical Norwegian?

3. 2. Development features2. Development features A. Before World War IIA. Before World War II Norway subordinated to Denmark for 400 years until 1814Norway subordinated to Denmark for 400 years until 1814 Then Norway got their first Constitution and became subordinated in a union with SwedenThen Norway got their first Constitution and became subordinated in a union with Sweden First hierarchical ministries in 1814 – finance, military, church/education and interiorFirst hierarchical ministries in 1814 – finance, military, church/education and interior

4. The Norwegian government the first 100 years very much dominated by civil servantsThe Norwegian government the first 100 years very much dominated by civil servants First agency in 1850s after independent ‘Swedish model’ – dominant form historicallyFirst agency in 1850s after independent ‘Swedish model’ – dominant form historically Integrated ‘Danish agency model’ introduced at the same timeIntegrated ‘Danish agency model’ introduced at the same time Period 1914-1940 introduced ‘Norwegian agency model’ – both division and agencyPeriod 1914-1940 introduced ‘Norwegian agency model’ – both division and agency

5. B. Period after 1945B. Period after 1945 Very strong growth in number of employees in ministries and in particular agenciesVery strong growth in number of employees in ministries and in particular agencies Increased vertical specialization – more leadership levels, agencies and SOEsIncreased vertical specialization – more leadership levels, agencies and SOEs Increased horizontal specialization – new types of units internallyIncreased horizontal specialization – new types of units internally More regulatory agenciesMore regulatory agencies

6. Strong sector ministries and weak coordination ministries – weak PMOStrong sector ministries and weak coordination ministries – weak PMO Ministries more ‘secretariats for political leadership’Ministries more ‘secretariats for political leadership’ Means more focus on helping political leaders and more coordination/policy developmentMeans more focus on helping political leaders and more coordination/policy development Less of single cases – moved to agenciesLess of single cases – moved to agencies

7. Big demographic change:Big demographic change: Right after 1945 70-80 % of civil servants educated in law, now around 20%Right after 1945 70-80 % of civil servants educated in law, now around 20% National economists recruited from the 1950sNational economists recruited from the 1950s Social scientists from 1970s – now largest groupSocial scientists from 1970s – now largest group Business economists from 1980sBusiness economists from 1980s Strong increase in share of women – from 12% to 45-50% during last 40 yearsStrong increase in share of women – from 12% to 45-50% during last 40 years

8. Extensive reforms from 1980s:Extensive reforms from 1980s: NPM – structural fragmentation – more independent agencies and SOEsNPM – structural fragmentation – more independent agencies and SOEs More efficiency-oriented organizingMore efficiency-oriented organizing More focus on usersMore focus on users Last decade more post-NPM – increased coordination and centralization - mergersLast decade more post-NPM – increased coordination and centralization - mergers

9. Often mixed and hybrid reforms:Often mixed and hybrid reforms: Police reform 2000 – new agency and merger of police districtsPolice reform 2000 – new agency and merger of police districts Immigration reform 2001 – new super- independent complaint body, more independent agency, but later more controlImmigration reform 2001 – new super- independent complaint body, more independent agency, but later more control Hospital reform 2002 – central government owner, but delegation to regional and local health companiesHospital reform 2002 – central government owner, but delegation to regional and local health companies

10. Regulatory agency reform 2003 – more autonomy for some agencies, but not othersRegulatory agency reform 2003 – more autonomy for some agencies, but not others Welfare administrative reform 2005 – merger of pension and employment agenciesWelfare administrative reform 2005 – merger of pension and employment agencies Establishment of one-stop shows in every municipality, in collaboration with local social servicesEstablishment of one-stop shows in every municipality, in collaboration with local social services Reform reorganized in 2008, more centralization and regionalization againReform reorganized in 2008, more centralization and regionalization again

11. 3. Driving forces3. Driving forces A. Political and administrative leaders behindA. Political and administrative leaders behind Formal hierarchical positions are importantFormal hierarchical positions are important Leaders have had relatively clear goals/motives and have rationally decided and implementedLeaders have had relatively clear goals/motives and have rationally decided and implemented In particular related to public commisions and reform processesIn particular related to public commisions and reform processes

12. B. Gradual developmentB. Gradual development Informal norms and values important for administrative developmentInformal norms and values important for administrative development Path dependency important – ‘roots’ determine ‘routes’Path dependency important – ‘roots’ determine ‘routes’ Cultural development is eventually leading to formal changesCultural development is eventually leading to formal changes

13. C. Symbolic processesC. Symbolic processes Design, reorganization and reforms are reflecting symbols and ‘fashion’Design, reorganization and reforms are reflecting symbols and ‘fashion’ Myths about what a modern administration isMyths about what a modern administration is Some symbols and solutions are dominating in certain period – changing mythsSome symbols and solutions are dominating in certain period – changing myths Decoupling of symbols and reality in public administrationDecoupling of symbols and reality in public administration

14. 4. What are some of the challenges in the system?4. What are some of the challenges in the system? A. Political-administrative controlA. Political-administrative control How to maintain political control, while the system is more decentralized and delegated?How to maintain political control, while the system is more decentralized and delegated? Political leaders often get the blame, but lack information and influencePolitical leaders often get the blame, but lack information and influence How to maintain standardization in services?How to maintain standardization in services?

15. B. How to nurture autonomy?B. How to nurture autonomy? How to give actors at lower levels enough leeway to act inside central goals?How to give actors at lower levels enough leeway to act inside central goals? How to balance central control with professional competence and interests of external stake-holders?How to balance central control with professional competence and interests of external stake-holders? Main features of report and scrutiny system?Main features of report and scrutiny system?

16. C. How to increase coordination?C. How to increase coordination? Structural measures, networks or softer and more informal collaboration?Structural measures, networks or softer and more informal collaboration? Focus on ‘wicked issues’, i.e. especially difficult cross-sectoral problems?Focus on ‘wicked issues’, i.e. especially difficult cross-sectoral problems? How much central control of the horizontal coordination?How much central control of the horizontal coordination?

17. 5. What is typical Norwegian concerning administrative development?5. What is typical Norwegian concerning administrative development? Political and administrative leaders share important norms and values – few conflictsPolitical and administrative leaders share important norms and values – few conflicts Rechtsstaat values and equalityRechtsstaat values and equality Modified hierarchy and a lot of autonomy inside administrative units - teamworkModified hierarchy and a lot of autonomy inside administrative units - teamwork

18. Agencies have had a lot of trust and autonomyAgencies have had a lot of trust and autonomy Administrative leaders with long careersAdministrative leaders with long careers Corporatist features important:Corporatist features important: Strong contact between government and large interest groupsStrong contact between government and large interest groups Norway is a reluctant reformer – late with reforms and uses the less extreme onesNorway is a reluctant reformer – late with reforms and uses the less extreme ones