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

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

3. 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

4. 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

5. Political Culture

6. The American Value System?

7. China Image: Does Political Culture Make a Difference?

8. Swedish Political Culture

9. Swedish Ombudsman

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

12. Pakistan: Muslim League Leaders – Issue of Secularism?

13. Danish Peasant Culture: The Happy Scandinavians?

14. 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

15. Organizational Culture as a Sub-Political Culture?

16. Organizational Culture: The Ideal Type

18. 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.

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

20. 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)

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

22. Remember Maslov’s Hierarchy of Needs

23. The Impact of Organizations

24. Socialization and Values
Implications for Organizations

25. 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

26. Socialization: Impact on Values and Culture

27. 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

28. 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

29. 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

30. Cultural Engineering?

31. 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

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

33. 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

34. How Purposeful?
Understanding the Budget

35. 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)

36. Decision-Making and Budgets
Themes and Definitions

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

38. Zero Based Budgets

39. 2. Standard Operating Procedures- SOPs

40. 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

41. SOPs- Scientific Origins

42. 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”

43. Bureaucratic Norms?

44. Bureaucrat Bashing as a Problem?

45. Bureaucratic Politics
Military Phrase:

46. 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

47. Victims of Group Think?: Irving Janis (Vietnam)

48. 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

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

50. Satisficing/Incrementalism

51. Incrementalism

52. 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

53. Cybernetics

54. Chaos

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

56. 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)

58. 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

59. The British and Spending
The Hospital

60. Acounting vs. Acountability

61. 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)

62. The Asian Model Issue: Capital vs. Developmental

63. 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)

64. Bureaucracy and the Danger of Corruption- World Patterns

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

66. 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)