Report - International Institute of Administrative Sciences

Transcription

Improving Administrative Sciences Worldwide
2014 International
Congress of IIAS
Socio Economic Priorities
and Public Administration
R e port
If r a ne , M oroc c o
1 3-17 Ju ne
Congrès international
de l’IISA, 2014
Les priorités socioéconomiques
et l’administration publique
R a ppo rt
If r an e , M aroc
1 3-17 juin
www.iias-iisa.org
Rue Defacqz 1, bte 11
B-1000 Bruxelles, Belgique
e-mail: [email protected]
30ème Congrès international des Sciences administratives
30th International Congress of Administrative Sciences
INTERNATIONAL INSTITUTE OF ADMINISTRATIVE SCIENCES
IIAS – Improving Administrative Sciences Worldwide
The International Institute of Administrative Sciences (IIAS) is a NGO with scientific purpose established in 1930 whose seat is
in Brussels.
The Institute is a worldwide platform providing a space for exchanges that promote knowledge and practices to improve the
organization and operation of Public Administration and to ensure that public agencies will be in a position to better respond
to the current and future expectations and needs of society.
It provides thus a forum where practical experiences and theoretical analyses of experts (academics and practitioners) in public
administration worldwide and from all cultures are presented and discussed.
To cover the diversity of its members, the IIAS has set up four entities:
• The IASIA (International Association of Schools and Institutes of Administration)
• The EGPA (European Group for Public Administration)
• The LAGPA (Latin American Group for Public Administration)
• The AGPA (Asian Group for Public Administration)
The IIAS aims to :
• promote the development of the administrative sciences ;
• provide a worldwide platform for exchanges between practitioners and academics ;
• establish a link between theoretical research and practice ;
• improve the organisation and operation of public administrations ;
• develop effective administrative methods and techniques ;
• contribute to the governance progress within the national and international administrations.
To realize its objectives, the IIAS implements the following actions:
• Organizes of Annual International Congress ;
• Sets up and manages of Project Groups ;
• Publishes the IRAS ;
• Publishes specific books ;
• Administrates a worldwide information network thanks to the «Knowledge Portal» ;
• Publishes a Newsletter three times a year.
Ackowledgements
The International Institute of Administrative Sciences should like to thank the High Patronage of His Majesty the King Mohamed
VI, Al Akhawayn University, the Ministry of the Interior, the Ministry of Public Service and Administration Modernisation, ENA
Morocco and the Province of Ifrane.
Remerciements
L’Institut international des Sciences administratives remercie le Haut-Patronage de Sa Majesté le Roi Mohamed VI, l’Université
Al Akhawayn, le Ministère de l’Intérieur, le Ministère de la Fonction publique et de la Modernisation de l’Administration, l’ENA
Maroc et la Province d’Ifrane.
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2014 International Congress of IIAS - Report Ifrane - June 2014
Congrès international de l’IISA, 2014 - Ifrane - Juin 2014
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INSTITUT INTERNATIONAL DES SCIENCES ADMINISTRATIVES
Contents - Sommaire
L’IISA est une ONG à vocation scientifique fondée en 1930 dont le siège se trouve à Bruxelles.
L‘Institut est une plateforme mondiale d’échanges qui permet de faire avancer les connaissances et les pratiques pour améliorer
l’organisation et le fonctionnement des administrations publiques afin que celles-ci soient en mesure de mieux répondre aux
attentes et aux besoins actuels et futurs de la société.
Il vise donc à offrir aux académiques et aux praticiens de toutes cultures un forum où peuvent être présentées et discutées les
expériences et les théories en administration publique.
Pour répondre à la diversité de ses membres, l’IISA a créé quatre entités :
• L’AIEIA (l’Association internationale des Ecoles et Instituts d’Administration)
• Le GEAP (le Groupe européen pour l’Administration publique)
• Le GLAP (le Groupe latino-américain pour l’Administration publique)
• Le GAAP (le Groupe asiatique pour l’Administration publique
L’IISA vise à :
• promouvoir le développement des sciences administratives ;
• offrir une plateforme mondiale d’échange entre praticiens et académiques ;
• établir un lien entre la recherche et la pratique ;
• améliorer l’organisation et le fonctionnement des administrations publiques ;
• perfectionner les méthodes et les techniques administratives ;
• apporter une contribution aux progrès de la gouvernance au sein des administrations nationales et internationales.
Pour réaliser ses objectifs, l’IISA met en œuvre les actions suivantes :
• organise des congrès internationaux annuels ;
• crée et gère des groupes de projet ;
• publie la RISA ;
• publie des ouvrages spécifiques ;
• gère un réseau mondial d’information via le « Portail de Connaissance » ;
• édite 3 fois par an une lettre d’information.
Introduction / Introduction................................................................................................................................................................................................... p.6
Reports of the Rapporteurs / Rapports des Rapporteurs................................................................................................... p.12
Braibant Lecture / Conférence Braibant....................................................................................................................................................... p.22
Intercontinental Administrative Forum / Forum administratif intercontinental.................................... p.25
Reports of the IIAS Permanent Study Groups /
rapports des Groupes permanents d’étude de l’IISA
• PST I: Public Administration, Democratic Governance Poverty Alleviation.................................................. p.30
• PST IV: Quality Governance................................................................................................................................................................................... p.32
• PST IX: Civil Service and Politics’................................................................................................................................................................... p.32
• PST XII: Prevention and Management of Disaster and Catastrophes
How Administrations deal with wicked problems?............................................................................................ p.34
• PST XVIII: Financial and Fiscal Public Administration............................................................................................................. p.35
Panel on Max Weber and the many disciplines of Public Administration /
Panel sur Max Weber et les nombreuses disciplines de l ’Administration publique.................... p.36
Host Country Panel / Panel du Pays hôte................................................................................................................................................... p.37
Panel on Governance Reform and China’s Growth /
Panel sur la réforme de la Gouvernance et la croissance de la Chine.............................................................. p.38
Panel on MENAPAR / Panel sur MENAPAR.............................................................................................................................................. p.39
Extra Session for Contributions of the Region /
Session supplémentaire pour des contributions de la région...................................................................................... p.40
Abstracts of papers presented during the congress /
Résumés des papiers présentés pendant le congrès
• IIAS Subthemes / Sous-thème de l’IISA................................................................................................................................................. p.42
• Open Call / Appel ouvert............................................................................................................................................................................................ p.64
• Contributions of the Regions / Contributions de la région................................................................................................ p.72
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Introduction
• The fourth Intercontinental Administrative Forum
The main theme of the congress was Rethinking Responsibility and Accountability of Public Administration in Times
of Globalization, Decentralization and Privatization.
The forum addressed the issue of continuity and change in public administrative reforms.
The scientific programme was composed of:
• Policy Platforms - a « Bridge » between the Scientific and the Practitioner on the following themes:
• Workshop sessions based on three subthemes:
Proliferation of Responsible Actors in Public Administration: competition, sharing of role and responsibility and
cooperation among actors
Sub-theme 1 - Proliferation of Responsible Actors in Public Administration: competition, sharing of roles and
responsibilities and cooperation among actors
This first subtheme starts from the diagnosis exposed above, according to which the responsibilities for increasingly complex
problems are more and more fragmented and entrusted to a wide amount of organizations of different types, and searches for
solutions in the ultimately responsible actor – the national government.
This subtheme welcomed contributions devoted to the ways national governments try to ensure consistency of the whole, by
managing competition and rivalry between these various actors involved in service delivery, by organizing a vertical division of
labour between principals and agents and an horizontal division of labour between agents of different types, by joining actors
in cooperation structures, by ensuring a learning effect occurs, etc…
Sub-theme 2 - Rethinking Accountability in Times of Proliferation of Public Actors: content and effective systems
for accountability
Accountability is a complex process. Its essence is expressed in the question “who is accountable to whom for what?” This
points at three potential problems: the proliferation of actors accountable to one actor, the proliferation of actors to which an
actor is accountable, and the proliferation of objects of the accountability relation. Once combined with each other, these
potential problems could lead to a sort of confusion or perplexity about who is ultimately accountable to whom for what. This
is why accountability needs to be rethought assuming the proliferation of public and other actors providing part of the answer
to increasingly complex problems.
An important question in discussing accountability is how well accountability is inspected and ensured, and by whom and by
which systems and mechanism. On one side, proliferation of actors, especially nongovernmental and private organizations
responsible for public services delivery, has made it difficult for policy makers and administrators to encompass the whole
picture of public administration for which they are responsible. On the other side, the increasing specialization and extremely
advanced technologies have made it rather difficult for administrators to control the matters and activities effectively for which
they are responsible as regulators or promoters.
Rethinking accountability and searching for the effective systems and ways to ensure “really meaningful accountability as for
operators, policy makers and citizens and users” is urgent.
The debates were articulated around several of the questions below:
1. What kind (public, private, non-for-profit) and how many actors, are engaged in policymaking and service delivery?
2.How is the division of labour organized between these actors, vertically (between levels of government), and
horizontally (among the actors at a given government level)?
3.Do these actors rather tend to cooperate and/or compete with each other and why?
4.What particular challenges these network of actors pose in terms of responsibility?
5.How can cooperation and coordination between these actors be improved? Are there positive examples in practice
today?
6.How effective are policies of joined-up government, cooperation and coordination in the public sector?
7.What can be learned from comparison between territorial entities and fields of activity?
Rethinking Accountability in Times of Proliferation of Public Actors: content and effective systems for accountability”.
1.How is the concept of accountability and related systems understood in the government and non-governmental
organizations?
2.How are the conventional systems and mechanisms of accountability organized?
3.What are the new trends in public administration and how do they challenge conventional systems of accountability?
4.How do new systems of accountability look like?
5.Are there accountability gaps in times of proliferation of public actors?
6.Under which circumstances can accountability lead to actual improvement of the public service?
7.How to fight corruption?
8.Transparency and accountability: how does the disclosure of accountability documents affect the accountability relation?
9.What innovative accountability practices do exist?
Capacity-building in the Times of Changes and Decentralization: organization and human capital development at
national, subnational and local government levels”.
Sub-theme 3 - Capacity-building in the Times of Changes and Decentralization: organization and human capital
development at national, subnational and local government levels
In promoting the decentralization, the national government must take measures not only to delegate administrative responsibilities to local governments but also to strengthen their capacity, in order to bear their increasing roles and responsibilities.
Since the decentralization does not mean dividing country to create small independent states or countries within the country,
a national government needs to promote local governments to function effectively, getting along well with the national government on important matters which are of the national interest. On the other side, local governments can learn a lot from the
experiences of other local governments with similar roles and responsibilities. They can implement the exchange of personnel
among them. Furthermore, local governments need to play an important role for the human capital development in the private
sector and in the locality as well, since the local area can prosper when both the public and private sectors are functioning well.
Human capital is the most important resource for a government. Without good human capital in a sufficient scale, the organization chart of a government is a dead letter. In the times of rapid changes and considerable development of science and new
technologies, the human capital development is a prerequisite for a government to function well at any level, and for the social
and economic development of the country as a whole. At the local government level, especially in developing countries, where
the public administration was implemented later than the national government, decentralization must be supported by the
effective plan of capacity building of organization and human capital. In principle, local governments have a prime responsibility
for the policies and measures to acquire and develop necessary human capital. In reality, however, it is too demanding for small
local governments, at least in the beginning.
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1. Which decentralization policies are pursued in different countries?
2.What do these decentralization policies imply in terms of capacity needs?
3.Which capacities are available at local level to address the challenges arising from decentralization?
4.What kind of measures have been taken to develop human capital at the local government in response to the
decentralization?
a.Individual level; mechanism to engage individuals in the process of learning and adapting to change?
b.Institutional level; mechanism and methods for modernizing existing institutions and supporting them in forming
organizational structures and effective methods of management?
c.Societal level; means to develop public administrators that are responsive and accountable?
5.To what extent is the system of exchange of personnel between different levels of governments and between
governments at the same level adopted?
6.Is there any case that advanced or fore-runner local governments accept the trainees from less developed local
governments?
7.Is it necessary or effective for local government to promote not only human capital for the public sector but for the
private sector as well?
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• Sessions of some of the IIAS Permanent Study Groups
Introduction
PST I: Public Administration, Democratic Governance Poverty Alleviation - point of departure from the landmark Declaration of the Millennium Assembly. Of the Millennium Goals, enshrined in that Declaration, Peace, Security and Development
with Poverty Alleviation were prominently featured. Spelt out in some detail, they were all predicated on effective cooperation
among UN Member States and this, in turn, on building their capacity for democratic governance and public administration. As
we approach the deadline of 2015, it is no mere coincidence that the countries, which come closest to meeting the MDGs, are
those with best performing administrative systems and institutions of governance. The Member States in question approximate
these goals or offer best assurances of being in a position to reach them in good time. With a crisis afflicting the world, the
issue of re-defining or fine-tuning the agenda for post-2015 becomes extremely relevant. What lessons have we learned from
one decade of efforts to secure sustainable growth with poverty alleviation? Has economic progress produced the hoped-for
lowering of global poverty levels? How evenly; how well?
Le thème principal du congrès était Repenser la responsabilité et la reddition des comptes de l’administration publique à
l’heure de la globalisation, la décentralisation et la privatisation.
PST IV: Quality Governance - in a global context aims at relating, connecting and synergizing these and other fields of study.
We do not want to compete, let alone hinder the manifold initiatives present, but aim to relate and strengthen them through the
creation of a new global forum in this challenging and important area.
PST VI: Strategic HRM and Organizational Behaviour in the Public Sector - In the practice of managing public sector
organizations, human resources management (HRM) and employees in general are often considered to be a cost that should
be minimized. In particular in the present times of budgetary constraints and austerity, cries for reducing employees grow
stronger and personnel cuts are still considered to be an easy way out of budget deficits. However, research outcomes point
to evidence that instead of a cost, public personnel and its management should be considered to be an asset, rather than a
cost (Rainey and Steinbauer 1999).
The aim of this group would be to further investigate the various elements of such a system of human resources management,
as well as their respective relationships, within a public sector environment.
PST IX: Civil Service and Politics’ - Executive governments are faced with increasing societal and political pressures. Such
pressures may derive from, amongst other factors, increased electoral volatility and polarization, changes in mass media and
communications, and the internationalization of policy challenges.
PST XII: Prevention and Management of Disaster and Catastrophes – How Administrations deal with wicked problems?
– The overall aim of the study group is to collect, encourage and synthesize practical experiences and research in catastrophe
and disaster prevention and crisis management from a perspective of public administration and organizational analysis. The
study group aims at the systematic identification and discussion of administrative capacities and arrangements to prevent,
prepare for, respond to and recover from disasters and catastrophes.
PST XVIII: Financial and Fiscal Public Administration - Global economic and financial crisis with its enormous impact on
fiscal issues has focused attention of policy makers, academics and pundits on policy debates on financial regulation (such as
too big to fail issues) and fiscal policy (austerity vs stimulus programs). Globally there is a marked diversity of reactions; indeed
we can argue that in financial regulation and fiscal policy ‘the West’ and emerging markets in Latin America and Asia have
chosen often opposing paths. However, comparatively little attention has been focused on the impacts of policymaking and
public administration institutions and processes on these policy crises.
Le programme scientifique se composait de :
• Sessions d’atelier basées sur trois sous-thèmes :
Sous-thème 1 - La multiplication des acteurs responsables dans l’administration publique: la concurrence, le
partage des rôles et des responsabilités et la coopération entre les acteurs
Ce premier sous-thème commence par le diagnostic exposé ci-dessus selon lequel les responsabilités pour un nombre accru
de problèmes complexes sont de plus en plus fragmentées et confiées à un grand nombre d’organisations de types différents,
suivi de la recherche de solutions au niveau de l’acteur responsable en dernier ressort - le gouvernement national.
Les contributions soumises dans le cadre de ce sous-thème étaient consacrées aux moyens mis en place par les gouvernements nationaux afin d’assurer la cohérence de l’ensemble, la gestion de la concurrence et de la rivalité entre les différents
acteurs impliqués dans la prestation de services , en organisant une division verticale du travail entre les acteurs principaux et
les agents et une division horizontale du travail entre agents de différents types, en regroupant les acteurs dans les structures
de coopération, en assurant un apprentissage continu.
Sous-thème 2 - Repenser la responsabilité à l’heure de la multiplication des acteurs publics : contenu et systèmes
efficaces de reddition des comptes
La reddition des comptes est un processus complexe. Son essence se décline dans trois questions essentielles : Qui est
responsable, devant qui et pourquoi ? : La multiplication d’acteurs responsables envers un acteur, la multiplication des acteurs
envers qui l’acteur est responsable, et la multiplication des objets dans la relation d’imputabilité. Une fois combinés les uns aux
autres, ces problèmes peuvent conduire à une sorte de confusion ou de perplexité au sujet de qui est responsable en dernier
ressort, pour qui et pourquoi. C’est pourquoi la reddition des comptes doit être repensée en supposant que la multiplication
des acteurs publics et autres agents fait partie de la réponse durable aux problèmes de plus en plus complexes.
Une question importante à discuter concernant la reddition de comptes réside dans la façon dont elle est contrôlée et garantie,
par qui et par quels systèmes et/ou mécanismes. D’un côté, suite à la multiplication des acteurs, notamment les organisations non
gouvernementales et privées responsables de la prestation des services publics, il a semblé être difficile pour les décideurs et les
administrateurs publics d’appréhender l’image globale de l’administration publique dont ils sont responsables. Par ailleurs, de l’autre
côté, la spécialisation grandissante et les technologies extrêmement avancées ont rendu plus difficile pour les administrateurs le
contrôle efficace des questions et des activités pour lesquelles ils sont responsables en tant que régulateurs ou promoteurs.
Repenser la reddition des comptes et chercher des systèmes et des moyens d’assurer une «reddition des comptes entièrement compréhensible tant pour les opérateurs, les décideurs que pour les citoyens et usagers» est urgent.
Sous-thème 3 - Renforcement des capacités à l’heure des changements et de la décentralisation : l’organisation
et le développement du capital humain au niveau du gouvernement national, infranational et local.
• Various panels
Panel on Max Weber and the many disciplines of Public Administration
Host Country Panel
Panel on Governance Reform and China’s Growth
Panel on MENAPAR
Extra Session for Contributions of the Region
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Dans la promotion de la décentralisation, le gouvernement national doit prendre des mesures non seulement pour déléguer des
responsabilités administratives aux collectivités locales, mais aussi pour renforcer leurs capacités, afin que celles-ci puissent assumer
leurs rôles et leurs responsabilités croissantes. D’une part, la décentralisation ne signifie pas nécessairement diviser le pays et créer de
petits Etats indépendants ou des pays dans le pays, un gouvernement national doit également faire en sorte que les administrations
locales fonctionnent efficacement, qu’elles s’entendent bien avec le gouvernement national sur les questions importantes qui sont
de l’intérêt national. D’autre part, les gouvernements locaux peuvent apprendre beaucoup des expériences des autres collectivités
locales ayant des rôles et des responsabilités semblables. Ils peuvent mettre en œuvre l’échange de personnels entre eux. En outre,
les gouvernements locaux peuvent jouer un rôle important pour le développement du capital humain dans le secteur privé et dans la
localité, puisque la région ne peut prospérer que lorsque les deux secteurs, public et privé, fonctionnent bien.
Le capital humain est la ressource la plus importante pour un gouvernement. Sans un bon capital humain de haute qualité à une
échelle suffisante, l’organigramme d’un gouvernement est sert à peu de choses une lettre morte. A l’heure des changements
rapides et du développement considérable de la science et des nouvelles technologies, le développement du capital humain est
une condition préalable pour un gouvernement afin de bien fonctionner à tous les niveaux, et pour le développement économique
et social du pays dans son ensemble. Au niveau de l’administration locale, en particulier dans les pays en développement, où
l’administration publique a été mise en œuvre plus tard qu’au niveau du gouvernement national, la décentralisation doit être
soutenue par un plan efficace de renforcement des capacités d’organisation et de capital humain. En principe, les collectivités
locales ont une responsabilité première pour les politiques et les mesures visant à acquérir et développer le capital humain
nécessaire. En réalité, cela est contraignant pour les petites collectivités locales, tout au moins au début.
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• Le quatrième forum administratif intercontinental
• Des Sessions de certains Groupes permanents de l’IISA
Le forum abordait la question de la continuité et du changement dans les réformes administratives.
GE I: Administration publique et réduction de la pauvreté - - Le Groupe d’étude a pris son point de départ à partir de la
Déclaration historique de l’Assemblée du Millénaire. Parmi les objectifs du Millénaire, consacrés dans cette Déclaration, la paix,
la sécurité et le développement de réduction de la pauvreté ont été en bonne place. Épeautre en détail, ils ont tous été fondés
sur une coopération efficace entre les États membres de l’ONU et ce, à son tour, sur le renforcement de leur capacité pour la
gouvernance démocratique et l’administration publique. Comme nous nous approchons de la date limite de 2015, il n’est pas
un hasard si les pays qui se rapprochent le plus de la réalisation des OMD, sont ceux qui ont le plus performant des systèmes
et des institutions de la gouvernance administrative. Les États membres en question se rapprochent de ces objectifs ou offrent
de meilleures garanties d’être en mesure de les atteindre en temps utile. Avec une crise qui frappe le monde, la question
de la redéfinition ou d’affiner l’ordre du jour pour l’après-2015 devient extrêmement pertinente. Quelles leçons avons-nous
appris d’une décennie d’efforts pour assurer une croissance durable avec la réduction de la pauvreté? Est-ce que les progrès
économiques ont produit l’espoir d’une baisse des niveaux de pauvreté mondiale? Comment uniformément; comment?
• Plateformes politiques - un « lien » entre le point de vue scientifique et le point de vue pratique, entre
l’offre et la demande de connaissances académiques sur l’administration publique.
La multiplication des acteurs responsables dans l’administration publique: la concurrence, le partage des rôles et
des responsabilités et la coopération entre les acteurs
Les débats portaient sur une ou plusieurs des questions ci-dessous :
1. Quels types (public, privé, à but non lucratif) et combien d’acteurs sont engagés dans l’élaboration des politiques et la
prestation de services?
2.Comment la division du travail est-elle organisée entre ces acteurs, à la verticale (entre les niveaux de gouvernement),
et horizontalement (entre les acteurs au niveau de gouvernement donné)?
3.Ces acteurs ont-ils plutôt tendance à coopérer et / ou entre en concurrence avec les autres et pourquoi?
4.Quels défis particuliers posent les réseaux d’acteurs en termes de responsabilité?
5.Comment la coopération et la coordination entre ces acteurs peuvent être améliorées? Y a-t’ il des exemples positifs
dans la pratique aujourd’hui ?
6.Quelle est l’efficacité des politiques du gouvernement décloisonné, de la coopération et de la coordination dans le
secteur public?
7.Que peut-on apprendre de la comparaison entre les entités territoriales et les domaines d’activité?
Repenser la responsabilité à l’heure de la multiplication des acteurs publics : contenu et systèmes efficaces de reddition des comptes
1.Comment le concept de responsabilité et ses systèmes connexes est-il compris dans les organisations
gouvernementales et non gouvernementales ?
2.Comment les systèmes et les mécanismes conventionnels de responsabilité sont-ils organisés ?
3.Quelles sont les nouvelles tendances dans l’administration publique et la façon dont ils remettent ne systèmes
conventionnels de reddition des comptes ?
4.A quoi ressemblent les nouveaux systèmes de responsabilisation ?
5.Y at-il des lacunes dans la reddition de comptes à l’époque de la prolifération des acteurs publics?
6.Dans quelles circonstances la reddition des comptes peut-elle conduire à une amélioration réelle de la fonction
publique?
7.Comment lutter contre la corruption?
8.Transparence et responsabilité: comment la divulgation de documents de reddition de comptes affecte-t-elle la
relation de responsabilité?
9.Existe-t-il des pratiques innovantes de reddition des comptes?
Renforcement des capacités à l’heure des changements et de la décentralisation : l’organisation et le développement du capital humain au niveau du gouvernement national, infranational et local
GE IV : Qualité de la gouvernance - dans un contexte mondial vise à rattacher, connecter et mettre en synergie ce domaine
et d’autres domaines de l’étude. Nous ne voulons pas faire concurrence, et encore moins entraver les multiples initiatives
actuelles, mais nous visons à les relier et de les renforcer par la création d’un nouveau forum mondial dans cet important et
stimulant domaine.
GE VI : GRH stratégique et comportement organisationnel dans le secteur public - Dans la pratique de la gestion des
organismes du secteur public, la gestion des ressources humaines (GRH) et du personnel en général sont souvent considérés
comme un coût qui doit être minimisée. En particulier en ces temps de contraintes budgétaires et d’austérité, des appels à la
réduction des effectifs se renforcent et les réductions de personnel sont toujours considérées comme un moyen facile de sortir
des déficits budgétaires. Toutefois, les résultats des recherches pointent vers la preuve que le personnel public et sa gestion
doivent être considérés comme un atout plutôt que comme un coût (Rainey et Steinbauer 1999).
L’objectif de ce groupe serait d’étudier plus avant les différents éléments d’un tel système de gestion des ressources humaines,
ainsi que leurs relations respectives, dans un environnement du secteur public.
GE IX : Service civil et politiques – Les Gouvernements exécutifs sont confrontés à des pressions croissantes de la société
et des politiques. Ces pressions peuvent provenir, entre autres, de l’augmentation de la volatilité électorale et de la polarisation,
les changements dans les médias et la communication de masse, l’augmentation de la liberté d’information et la transparence
du gouvernement, et l’internationalisation des défis politiques.
GE XII : Prévention et gestion des désastres et catastrophes – Comment les administrations traitent de problèmes
épineux - L’objectif global du groupe est de collecter, d’encourager et de synthétiser les expériences pratiques et la recherche
dans les catastrophes et la prévention des catastrophes et de la gestion de crise d’un point de vue de l’administration et de
l’analyse organisationnelle. Le groupe d’étude vise à l’identification systématique et à la discussion des capacités administratives et des dispositions pour prévenir, préparer à répondre aux désastres et récupérer des catastrophes.
GE XVIII : L’administration publique financière et fiscale - La Crise économique et financière mondiale avec son énorme
impact sur les questions fiscales a attiré l’attention des décideurs politiques, des universitaires et des experts sur les débats
politiques sur la régulation financière (comme too big to fail questions) et la politique budgétaire (austérité vs programmes de
relance). Globalement, il y a une forte diversité de réactions; En effet, nous pouvons affirmer que la régulation financière et
la politique budgétaire «l’Occident» et les marchés émergents en Amérique latine et en Asie ont choisi souvent des chemins
opposés. Cependant, relativement peu d’attention a été portée sur les répercussions de la décision politique et les institutions
de l’administration publique et les processus de ces crises politiques.
1.Quelles politiques de décentralisation sont poursuivies dans les différents pays ?
2.Qu’impliquent les politiques de décentralisation en termes de besoins de capacité?
3.Quels moyens sont disponibles au niveau local pour relever les défis liés à la décentralisation?
4.Quel type de mesures ont été prises pour développer le capital humain du gouvernement local en réponse à la
décentralisation?
a) Niveau individuel; mécanisme pour faire participer les individus dans le processus d’apprentissage et d’adaptation
au changement ?
b)Niveau institutionnel, les mécanismes et les méthodes pour la modernisation des institutions existantes et les
soutenir dans la formation des structures organisationnelles et des méthodes efficaces de gestion?
c) Niveau sociétal, des moyens pour développer des administrateurs publics qui sont réceptifs et responsables?
5.Dans quelle mesure le système d’échange de personnel entre les différents niveaux de gouvernements et entre les
gouvernements de même niveau sont-ils adoptés ?
6.Existe-t-il des cas où des gouvernements locaux plus avancés ou plus avant-coureur acceptent des stagiaires des
collectivités locales les moins développées ?
7.Est-il nécessaire ou efficace pour le gouvernement local de promouvoir non seulement le capital humain dans le
secteur public, mais également dans le secteur privé?
10
• Différents panels
Panel sur Max Weber et les nombreuses disciplines de l’Administration publique
Le panel du Pays hôte
Le Panel sur La Réforme de la Gouvernance et la croissance Chinoise
Panel sur MENAPAR
Session supplémentaire pour des contributions de la région
11
Report of the Rapporteurs
Rapport des Rapporteurs
Available only in the language of the presentation / Disponible uniquement dans la langue de présentation
Rapporteurs Team / Équipe des Rapporteurs
Theme 1 – Proliferation of
Responsible Actors in Public
Administration: competition,
sharing of roles and
responsibilities and cooperation
among actors
General
Rapporteur
Theme 2 – Rethinking
Accountability in Times of
Proliferation of Public Actors:
content and effective systems for
accountability
Theme 3 –Capacity-building
in the Times of Changes and
Decentralization: organization
and human capital development
at national, subnational and local
government levels
Prof. Dr. Jacques Bourgault – Canada
Academic
Rapporteurs
Prof. Hideaki Shiroyama – Japan
Prof. Tony Bovaird – UK
Prof. Brahim Zyani – Morocco
Practitioner
Rapporteurs
Dr. Freddy Marinez Navarro
Mexico
Mrs. Aziza Zemrani
USA/Morocco
Dr. Robert Taylor – Canada
Le Congrès s’ouvrit avec les discours d’ouverture donnés par les grandes autorités du Royaume du Maroc, représentants des
Ministres des universités et grandes écoles, celui du Président de l’Institut. Suivit le Forum administratif intercontinental et les
travaux des participants aux trois sous-thèmes, au thème ouvert, aux groupes d’étude et des ateliers spéciaux tels le Forum
sur Max Weber et le séminaire sur l’administration marocaine ainsi que celui sur l’administration chinoise.
Report of the Rapporteurs
Rapport des rapporteurs
PRÉSENTATION DU THÈME PRINCIPAL
Accountability appears to be the mantra of multiple generations of academics and administrators. It is a very welcome intent
and contributes to good governance, legitimation and increases performance on many counts.
It is interesting to see that actors and researchers seem to give to accountability the geometry that circumstances dictate.
Some tend to use the specifics of accountability to avoid any specific responsibility.
Accountability could bear on some paradoxes such as opposing legal conformity to results, costs or efficiency; opposing legal
versus political accountability and the borders of each one; like wicked accountability whereas there is no global accountability.
La reddition de comptes est inhérente au principe-même de la démocratie alors que la chaîne des mandataires doivent rendre
compte aux divers mandants. Rendre compte pourquoi? Jusqu’où? Comment? Sur quelles bases documentaires?, avec
quelles exceptions? Sanctions? Et débouchant sur quelles perspectives de leçons apprises?
On a connu la reddition de comptes assez traditionnelle avec un État de petite taille, intervenant sur des problématiques semblant peu complexes, pour des politiciens absents ou indifférents et pour un public peu éduqué et peu informé. Then it became
more tricky: the expectations of good governance arose, the State grew up, problems appeared immensely complex and
intricate, everything became more technical and more uncertain, the legal basis for so called “good action” became blurred.
Actually the new context of society and of New Public Management has not eased the situation. Six factors, beside globalisation, enter into consideration:
•La société civile veut reprendre le terrain dont l’État l’a expropriée de bonne foi au 20e siècle;
•L’information continue 7/24 dans un cadre de compétition féroce fait de l’action gouvernementale son menu favori
•La venue d’internet et des technologies de saisie d’informations, de photos et films défie la production discursive des
administrations;
•Les attentes des citoyens informés sont plus élevées qu’au temps où on ne pouvait comparer les situations nationales;
•Il y a plus de pression sur les politiciens, et ceux-ci la répercutent sur l’administration;
•Les groupes de pression peuvent manipuler par de nouveaux moyens, l’action des gouvernements
•Les ressources financières ne sont plus autant disponibles qu’auparavant.
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13
Politicians and senior officials are held into account for results, not only promesses of actions but their action is more and more
constrained from the higher level with international agreements on policies, techniques and commerce and with the markets
pressures; it is constrained from the sides as everything in a contemporary government is more intersectorial and horizontal;
it is constrained from below with the alternatives modes for delivering the services with the triple Ps; the procurements; the
concessions and the tele-regulated governmental services.
Those devices raise many accountability issues like assuring the quality control for the public interest, the costs controls (like
due diligence on procurements), revealing the real costs for the citizen, assuring the sustainability: what if an essential public
good provider goes on bankruptcy?
En ces matières la littérature et l’expérience présentent de multiples histoires d’horreur, mais aussi des cas de succès.
Pour ces raisons, le Congrès discutera du thème complexe de l’imputabilité indirecte ou à distance. Quel que soit le dispositif
mis en place pour produire et livrer un bien public, le gouvernement demeure responsable de sa bonne livraison.
Voilà pourquoi le Congrès discute des réformes lors de la Conférence intercontinentale et de la Conférence Braibant. À ces
égards, les exposés du Prof. Dr. Christopher Pollitt sont très attendus.
Since the main theme is: Rethinking of Responsibility and Accountability of Public Administration in the Times of Globalization,
Decentralization and Privatization
The Sub-theme 1 will address the issue of Proliferation of Responsible Actors in Public Administration: competition, sharing of
role and responsibility and cooperation among actors. How is it possible to share split responsibilities? What are the ingredients
for real cooperation amongst the administrative actors?
The Sub-theme 2 is entitled: Rethinking of Accountability in the Times of Proliferation of Public Actors: content of accountability
and search for effective systems for accountability
The Sub-theme 3 deals with: Capacity-building in the Times of Changes and Decentralization: organization and human capital
development at national, subnational and local government levels. Within this new organization what are the specific competencies for the human capital to facilitate the relations with citizen, politicians, other governmental partners, managing for
results, risk assessment, etc.
On ne s’attend pas à ce que toutes les questions se trouvent résolues pour toujours mais nous osons espérer que ces travaux
contribuent à identifier les enjeux plus clairement; partager des apprentissages; identifier les bonnes idées autant que les «
fausses bonnes idées »; mettre en contexte les expériences de chacun; partager et enrichir nos réseaux de connaissances et
d’amitiés.
SUBTHEME 1-SYNTHESIS / SOUS THÈME 1-SYNTHÈSE
Proliferation of Responsible Actors in Public
Administration: competitions, sharing of roles and
responsibilities and cooperation among actors
the quality assurance of service delivery by social actors (mutual support pension fund). They organize to provide the scope of
service: public security, public stability, social equality.
The session 2 was devoted to the coordination among multiple actors.
Dans cette session l’on a montré que l’Administration publique est de plus en plus en train de changer vers la gestion partagée
entre les divers acteurs gouvernementaux et non gouvernementaux. Ces responsabilités partagées doivent tenir en compte les
objectifs, les principes et les valeurs qui gouvernent tout système administratif public. D’autre part, la collaboration est devenue
le mécanisme favori de l’action publique. En ce sens, l’administration publique doit mettre en place des modes de reddition
de compte innovateurs au sujet de l’efficacité et de l’efficience de ces mécanismes. Aujourd’hui, les cas de collaboration se
multiplient nécessitant ainsi une coordination suffisante pour arriver à une congruence entre les activités organisationnelles et
les activités partenariales, et d’autre part, entre le formel et l’informel. Il s’agit d’optimiser les recours à la collaboration comme
instrument de l’action publique et de rendre cette collaboration la plus démocratique possible.
La session 3 fut consacrée au leadership et au management.
Cette session a d’abord discuté du sujet du Gouvernement ouvert. On a exposé que la transparence, la participation et la
collaboration sont les trois axes du GO. Avec la transparence, les citoyens connaissent ce qui fait le Gouvernement; la participation permet d’améliorer l’efficacité et la qualité de l’action administrative parce que les citoyens y utilisent la connaissance
et les habiletés collectives. Enfin, la collaboration implique la Co-production et Coopération entre les différents acteurs publics,
les entreprise privées et organisations de la société civile. Dans cette perspective, le leadership partagé est devenu un sujet
d’importance fondamentale dans les changements de l’administration publique.
Durant la session 4 les présentations ont porté sur la participation du public
La participation publique fut considérée sous l’angle de la Gouvernance participative qui implique la coopération avec les
organisations de la société civile et les autres acteurs sociaux. La présentation des cas du Kenya (Afrique), de la Lithuanie
(Europe) et du Mexique comme des expériences positives qui permettent d’expliquer la collaboration civique entre les divers
acteurs. Cette participation doit s’inscrire dans le cadre des réseaux de politiques publiques faisant en sorte que les décisions
soient les plus efficaces et inclusives.
The Session 5 dealt with Joined Up Government - roles of central government for coordination and monitoring.
Papers considered the roles of central government as a meta-governor in priority setting, politics/ Agenda setting (advocate
of «underrepresented» voices), implementation and monitoring. They discussed the possibilities and limitations of coordination
and examined the “Good practice” of Chile from 2010-2014 – in the strengthening of Ministry of President and the reduction
of numbers of interdepartmental committees. The pointed out to the inevitable trade-offs for joined up government and discussed the dilemmas of information sharing for joined up government with personal data protection becoming a rationale for
separation of agencies.
Session 5 also dealt with the issue of Commercialization and Public Private Partnership
Papers presented some cases, West Balkans and Spain, to compare the PPPs in the emerging world contrasting with those
incurring in the developed world. The issues put forward dealt with the extensive rhetoric of Public private dialogue (PPD), the
necessity for assessment of institutions, the procedure and capacity for PPD, concluding on the importance of this informal
institution. There may be possibilities of bottom up meta-governance based on this assessment (partly through central government).
Co-Rapporteurs: Dr. Freddy Marinez Navarro, EGAP Government and Public Policy School (Mexico) and Dr. Hideaki
Shiroyama, University of Tokyo - Graduate School of Public Policy (Japan)
Major cross-cutting issues
Some 22 papers were presented. Four issues were common to most of sessions. First the nature of actors included the
traditional actors (social organizations, ministries) as well as new actors such as NGOs, citizens, private company. Second the
relationship among actors draw attention with the issues of collaboration, cooperation, coordination and the competition for
contractual relationship. Third the panelists discussed the merits and demerits of collaboration providing assurance of wider
perspective but taking time and wandered if collaboration was always possible with its’ inevitable tradeoffs and the possibility
of capture or cartel by limited actors. Finally papers opened up on the functions and limitations of the roles of state (center of
government) for meta-governance (designing governance structure).
The session 1 dealt with the network governance. It covered the inevitable dependence on social actors for resource efficiency
reasons, and discussed the cases of public security and pension in China. Some issues were identified such as the transition
from traditional social actors (units) to new actors, the social actors becoming instruments of state or autonomous actors and
14
15
SUBTHEME 2-SYNTHESIS / SOUS THEME 2-SYNTHESE
Résumé en langue française Brahim Zyani, Professeur École nationale de l’administration marocaine
Rethinking accountability in times of proliferation
of public actors - content and effective systems for
accountability
Le deuxième panel, lui, s’est emparé de la problématique majeure de la reddition des comptes dont les panélistes ont souligné
l’importance, voire la nécessité et, en même temps, la difficulté et la complexité au point de vue des exigences de sa mise en
œuvre. Certes, la reddition des comptes se situe au cœur de la gouvernance et de la démocratie, elle implique une vigilance
dans le processus de gestion des affaires publiques, exige l’adoption d’une nouvelle culture du service public, le renforcement
de l’autonomie de décision à tous les niveaux de responsabilité dans l’administration. Cependant, d’un autre côté, ce nouveau
paradigme, hissé dans de nombreux pays du globe au rang constitutionnel, comme c’est justement le cas dans notre pays
avec la constitution de 2011, requiert surtout une prise en considération des contraintes qui pèsent sur les managers publics
de la part des acteurs destinataires des « comptes », qu’ils soient des acteurs publics (parlement et autres conseils…) ou des
entités relevant de la société civile.
Co-Rapporteurs: Prof. Aziza Zemrani, University of Texas Pan American (USA) and Prof. Tony Bovaird, University of
Birmingham (United Kingdom)
Frameworks
One dealing with Accountability should wonder: Of whom? To whom? For what? With which outcomes? And with what redress
in case of failure? To discuss those themes, some papers used Bovens framework – accountability as a ‘virtue’ and as a
‘mechanism’. There are different conceptual frameworks for accountability: first accountability as a ‘virtue’, or more precisely
as a ‘governance principle’, which therefore needs to be traded off against other governance principles (e.g. transparency
and freedom of information). It could also be viewed as a mechanism including procedural rules and regulations, performance
management systems and HRM systems. Finally accountability could be seized as a relationship: a legal relationship (built into
regulatory frameworks), a financial relationship (audit, inspection), a social relationship (Behn’s ‘social compact’) or a personal
relationship (stewardship).
17 papers provided methodology and research design issues. Surveys were presented such as a survey of citizen views
(Korea) and another of NGOs (Turkey). We had interview surveys of regulates (Belgium) and of public officials (most papers) but not of politicians.
Most papers provided literature and documentary analysis, legal and constitutional considerations (France, Morocco, Mexico),
some looked at the media coverage (UK), one discussed the analysis of performance information (Morocco) and two used the
statistical analysis of citizen views (Korea, Lithuania)
This sub theme came up with the identification of six key policy issues emerging: first, information systems (in spite of three
decades of performance management) are often poor quality and can be falsified or gamed or ignored – all of these undermine
accountability. Second, what are public officials to be held to account for, when there is lack of coherent cadre of public
service – islands of excellence in separate streams? Different outcomes and different procedures contribute to ‘variety’ (a
la Pollitt) – but perhaps we can’t have TOO MUCH variety? Thirdly, accountability is perhaps stronger when we move from
‘one hierarchical chain’ – usually with at least one weak link – to ‘several chains’ of accountability - but with potential for
non-coordination (or even conflict) between criteria and judgments in each chains
Then, frequent (but not universal) suggestion in the papers that there should be more citizen-centered accountability – but
different citizen groups have very different criteria of success, different level of engagement (from street unrest to moaning at
the dinner table) and different preferred ways of interacting with public policy and service systems.
Fifth, ‘Crisis of accountability’ (e.g. in UK) when citizens are not appropriately involved – when accountability simply means
the elite holding the elite to account. Finally, ‘Big data’ gives the opportunity for citizens and other stakeholders outside
government to get involved in holding government to account – but these data systems only tangentially cover the issues on
which we WISH to hold governments to account.
Some provocations emerged like Why do citizens not yet play a greater role in holding government to account? Hypothesis
of explanations were:
• because government does not matter much anymore, in an era of multiple-stakeholders in governance?
• because citizens are not interested in issues on which government focuses?
• because citizens do not trust government to respond in ways in which are in the citizens interest?
• because they do not believe they can make a difference, given the lack of interest by the government (to paraphrase
Brecht, the government does not trust the people and is seeking to elect a new people, in whom it CAN place more
trust)?
• because they do not believe that the government has the competence to improve its performance where it is failing, so
people focus more on how they can self-organise, rather than trying to influence (irrelevant) civil servants and politicians?
• The lack of education? Repression or fear? Or, of course, many other reasons may play a role.
The session identified as well some research possibilities, like accountability as (Ranson and Stewart, 1994; Ashworth and
Skelcher, 2005): Taking into account, Giving an account, Holding to account, Redress, Democratic accountability through the
political process: a single concept? Or a chain, each link of which needs to exercised differently, held to account differently
– and researched differently? From Ministerial accountability, Parliamentary accountability, Local Government accountability,
participative democratic accountability?
16
SUBTHEME 3-SYNTHESIS / SOUS THÈME 3-SYNTHÈSE
Capacity-building in the Times of Changes and
Decentralization: organization and human capital
development at national, subnational and local
government levels
Co-rapporteurs: Dr. Robert P. Taylor, Institute of Public Administration of Canada – IPAC (Canada) and Dr. Brahim
Zyani, ENA (Morocco)
Synthesis prepared by Dr. Robert P. Taylor
During the selection process, 25 abstracts were proposed for Sub-theme 3 and 17 papers were presented at the Congress.
Sessions were further broken down into four central topics including i) service delivery and operations, ii) good governance and
decentralization, iii) capacity building, and iv) leadership, elites and human resources. Varied and interesting cases were discussed on specific countries from various global regions including studies from South Africa, Italy, Mexico, Uganda, Morocco,
China, Indonesia, Algeria, US, and Croatia. These examples provided important insights and aspects into the efforts of public
administrations to respond to the forces of change and support their implementation of decentralization; leading to a fulsome
discussion amongst delegates.
Overview
Over the last decade or so, the growing influence of such factors as globalization, economic volatility, demographic shifts,
urbanization, immigration, new technologies, and citizen empowerment (to name but a few) suggest that it is opportune to
reconsider our current public institutional structures at the national and local levels. In fact, this period has witnessed increasing
effort from national governments and global institutions (e.g., European Union, the World Bank and the UNDP) to transform
themselves and in particular, to dedicate significant effort and resources towards decentralization. It is recognized that local
government is closest to the people who receive support for security, education, health and poverty eradication. Advocates
have suggested that decentralization to local governments will strengthen democratization and lend support to social systems
and rights. Localization (the term used by the World Bank) is often considered to be a cornerstone to more sustainable
development and an important component that will help to balance and manage more effectively some of the more negative
effects of globalization.
Of course, programs and policies supporting decentralization have met with a myriad of challenges for the distribution and
accountability of power within and between jurisdictions. Central governments have been cautious and sometimes reluctant
to seed powers to local governments because of what is considered to be a direct accountability to the general populace.
This has often meant that local authorities do not have the capacity, resources or tools to be able to develop and deliver the
policies and programs that people need. Critics have suggested that where authority has been devolved, there have been
problems at the local level with corruption, consistency and monitoring (although many also concede that the same is often
true at the state and national level as well). While decentralization challenges traditional governance models and approaches,
it also presents an opportunity to address economic, social and environmental issues locally yet within a global context. The
convergence of population, cultures, and creativity at the local level can be harnessed if local authorities are given the proper
tools, resources and powers.
17
Presentation Results
Speakers provided numerous case examples that demonstrated the significant transformation efforts that various governments
have undertaken to improve operations and service delivery to citizens at all levels, with a primary focus on local communities.
Additionally, presentations were able to document the many hurdles, impediments and challenges that such initiatives face on
a regular basis. The key observations included the following:
• Recent efforts at decentralized authority are beginning to show successful results. For example, Chinese leaders have
recently commenced a transformation exercise for the country’s food safety regime which moves away from centralized
regulation (with many historical failures) to provide greater empowerment to local governments and social organizations.
While not a panacea, this transformation is seen as a useful innovation of governance capacity for China’s food safety
sector. Indonesia also provides a setting to illustrate the potential benefits of decentralization. In this case, delegating
authority to the local government (Autonomous Region) enabled the local community to focus on the protection and
development of tourism and heritage values, which has led to important improvements in employment, economics, as
well as socio-cultural values.
• While funding is always a key factor in limiting the delivery of programs and services at the local level, a lack of capacity at both the political and bureaucratic level can also significantly impair such support. This is particularly true for
municipalities in more rural areas where councilors may have limited educational background and hence lack the basic
competencies and capacity to administer and oversee municipal administration. This can be further stymied where such
councilors serve for purposes of their own financial benefit (sitting allowance, etc.). In places such as Uganda, it is the
bureaucracy where they face the most challenges; where local district offices have problems with staff retention, staff
turnover, absenteeism, abscondment and poor performance.
• Proper public administration has also been adversely affected by corruption by state officials and bureaucrats, although
most attention has been given to traditional criminal activity. International studies confirm that the variegated nature of
corrupt practices often involve conduct, while being lawful, results in administrative irregularities or alter decision-making
practices that cause delays, waste and ultimately undermine public ethics and credibility. Some jurisdictions such as
Italy, have taken measures to try to capture and manage such irregularities through a combination of laws, policies and
guidelines. Unfortunately, the complexity of this top-down process and its lack of authority has meant little improvement.
• Information and data bases are becoming important ingredients in the delivery of government services. However, many
organizations do not have the proper systems in place to capture, manage, exploit and protect such information (particularly from cyber attacks).
• Capacity-building to support government transformation has also focused attention on human resource development
and leadership (at all levels). For example, China is investing in the training and deployment of College-Graduate Village
Officials with a focus on basic competencies in political judgment, strategic thinking, administration, innovation and
leadership. Other places such as Indonesia have initiated a more comprehensive approach to civil service reform that
includes a regime of training and a new set of policies and approaches to deal with recruitment, placement and remuneration. Many have also given attention to the development and support of the leadership recognizing that there is
growing evidence to suggest that this is a critical factor for successful transformation of government delivery systems.
By example, Croatian studies have concluded that leaders can have a significant impact on learning processes in
administrative organizations. Similarly, researchers have found that the new generation of political leaders in China have
invigorated and improved traditional administrative reform processes and helped to create an environment of innovation
and creativity.
FURTHER OBSERVATIONS
Cities across the Globe continue to grow and their influence is now more far reaching than ever before. Despite significant efforts
to capitalize on this growing strength, many cities still have not reached their potential because they have lacked the real authority
and tools that are needed to compete in an ever globalizing environment. While significant effort and resources have been
dedicated in the last decade or so to support decentralization, they have often been too focused, limited in their reach and have
not provided real empowerment. Consideration for the future should be given to developing sincere and founded partnerships
between national and local levels of Government and taking measure to ensure local communities are truly empowered with the
appropriate tools to manage and grow effectively (including local forms of funding and control over functions).
With respect to the grouping of sessions under Sub-theme 3, it was observed that the presenters did a valiant job in documenting what was has happened (yesterday) so that we can manage today for a better tomorrow. It would be equally important to
consider “the day after tomorrow” in that many of the trends that are dramatically influencing public institutions are long-ranging
and will have to be considered for years to come. It will be incumbent upon the participants of this congress in building a better
understanding of the longer term.
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Résumé du co-rapporteur Brahim Zyani (École nationale d’administration du Maroc)
Le troisième panel a focalisé ses travaux sur la décentralisation et la gouvernance locale. Les panélistes ont eu à répondre
aux deux interrogations suivantes1. Dans quelle mesure les gouvernements locaux des pays étudiés ont-ils réussi à adopter
des solutions pertinentes et efficaces aux problèmes locaux? 2. Dans quelle mesure les gouvernements locaux desdits pays
ont-ils fait preuve de suffisamment capacités pour faire face aux exigences découlant des politiques de décentralisation et de
développement territorial ?
S’agissant de la première question, les communications ont montré que grosso modo, et en dépit des contraintes qui pèsent
sur les instances décentralisées, contraintes relatives essentiellement aux insuffisances des ressources humaines, notamment
en termes de qualité, aux limites budgétaires et parfois technologiques, Ces instances ont pu, tout de même, développer des
politiques de développement plus au moins adéquates aux problèmes rencontrés, sans pour autant parvenir à combler tous
les besoins exprimés par les citoyens des pays étudiés.
S’agissant de la seconde question, il y a pratiquement une convergence autour d’une réalité largement partagée par l’ensemble
des présentations à savoir la persistance, au niveau local, de déficits énormes et sans cesse renouvelés en matière de
capacités. Ce qui veut dire que les structures décentralisées, à quel niveau où elles se situent, ont du mal à se doter du savoir
gérer nécessaire à même de leur permettre d’assumer toutes les responsabilités qui leur reviennent en vertu des politiques de
décentralisation et de développement territorial initiées par les pouvoirs centraux.
OPEN CALL SYNTHESIS / SYNTHESE APPEL OUVERT
Le Congrès a aussi permis de prendre connaissance de présentations qui n’étaient pas substantiellement rattachées au thème
central retenu pour les sous-groupes discutant d’aspects particuliers de la reddition de comptes. Vingt-huit propositions ont
été retenues et réparties en 5 ateliers : Le pouvoir local et la reddition de comptes; quelques cas spécifiques de reddition de
comptes; les enjeux de gouvernance; les dynamiques intersectorielles; les innovations administratives et l’enjeu de la gestion
des ressources humaines.
Papers presented the following ideas: Social identity and sense of belonging are the basis for accountability and political
participation: cultural tools create political identity (Mrs. Zarif Songul Goksel). Central norms may succeed with narrow targeted
impacts, but at the price of killing local initiatives (Mrs. Marcia Ducarmo: Kindergarden example in Brazil). There is a need for
integrated accountability system while 3 departments have norms in competition and contradiction over the same administration (Mrs Solange Hernandez and Leila Messaouden: Public health and food control in France).
Dr. Knorr pleaded against tunnel accountability insisting on cross fertilization of accountability processes. Performance measurement leads to accountability which is a driver for changing professional culture (Mrs. Goranka Lalic Novak about Border
control in Croatia). Looking outside for recognition may break the good governance conditions inside, due to lack of internal
accountability (Mr. Edgar Varelas-Barrios: City marketing in Columbia). Les commissaires aux comptes des universités françaises enrichissent la reddition de comptes et le management. Il fournit arguments et armes pour obtenir des changements.
(Mr. Hanza El Kaddouri).
Witod Mikulovski¸from Poland, presented a paper about technical cooperation in accountability matters. He offered views
about the ideal model while he recognized there is a hierarchy of characteristics, trade-offs and cultural dimension that could
help or hamper cooperation initiatives. The most important factor for cooperants is too well understand the context. So many
factors import that it is difficult to come up with the one and only model of relations. The fragility of the State is the most
important one with the colonial influence (with positive or negative bias). This is why governance has to bear different and
flexible rationales. One would have to oppose the drivers of success to the sensible drivers of success.»
CONCLUSION
This conference provided the rich opportunity to cover a series of essential topics when it comes to accountability.
Tout d’abord l’imputabilité, comme composante fondamentale de la bonne gouvernance, est fonction d’une variété de facteurs
très sensibles tels que la nature et la clarté des mandats, le maintien de la légitimité et la capacité d’intégration politique par
la participation de tous les acteurs au processus d’imputabilité.
Then comes the issue of Accountability for what? The answer will vary depending on the nature of the administration: army
at war obviously meets different challenges than running an opera house. The same could be said for Justice Administration
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and maritime transportation control. Following the first wave of accountabilities for conformity and compliance, came the
accountability for the use of all resources made available. Then came the accountability for effectiveness which fraises the
issue of the nature and ambition of the engagements one is to be accountable for. Followed the accountability of efficiency
and one of it’s declination: value for money. Along the years, accountability for human rights and respect of rule of law became
more important. Then accountability for service to citizen appeared on the radar: the quantity of services, their quality and their
accommodative parameters were questioned.
This raises also the conditions for transparency, the basic ingredient for accountability: will it make accountability a Potemkin
village or will it be transparent? There is a need for sincerity, for exhaustivity and significance into the reporting, social conviviality for the reporting and a good judgment of what is too much and will drown the data. Transparency would know when
it is preferable to use split or integrated reporting and in the first case when it is adequate to put this reporting into context.
Transparency asks also for the adequate conditions to produce the valuable useful reporting. Those include the level of
capacity of the national public service, human, technical, informational, etc.
Les critiques des processus sous-jacents à l’imputabilité n’ont pas manqué. L’imputabilité serait toujours imparfaite, trop limitée, trop partielle, superficielle, contournable, etc. Ceci dit qui voudrait revenir 30 ou 40 ans auparavant? Alors que certaines
administrations s’estimaient tout permis, ne rendaient jamais comptes, posaient des actes sans finalité précise, ni balises et
souvent par habitude. Alors que plus d’argent encore était dépensé sans véritable analyse critique. Alors que les citoyensusagers-bénéficiaires étaient peu pris en compte et recevaient un service de piètre qualité.
L’imputabilité à distance pose la question des mandats et des mandataires. What is the very nature of the mandates or the
contracts? What is there usefulness in terms of precision for guidance, support and accountability? For now we see the
large diversity of standards for selecting board members of quangos, hospitals, universities, etc. There is need to search for
accountability competencies and for leadership.
En ces matières, la patience et la critique d’apprentissage sont nourries par l’humilité et la sérénité. Il faut au moins 5 ans à
un indicateur pour devenir mature…si les conditions de sa dispensation ne changent pas trop. En toutes choses il y a des
erreurs et échecs qui mènent à des succès ensuite. Aurait-on voulu interdire les vols d’avion après les premiers accidents au
début du siècle? Les transplantations cardiaques après les premiers rejets ou décès? Il a fallu à ces pionniers poursuivre leur
travail d’apprentissage critique et peaufiner leurs pratiques. Il en va de même pour l’imputabilité dans ses méthodes et ses
processus : il y a constamment besoin de revoir, raffiner et refaire les choses. Les exposés des administrations marocaines et
chinoises nous ont éloquemment montré que cette discipline a permis la progression de leur administration.
L’imputabilité doit être tournée vers et utilisée pour l’apprentissage continu. Elle ne peut se limiter à des sessions d’exécution
sommaire. L’apprentissage peut se faire politique, administratif et sociétal si chacun peut tirer des leçons de pourquoi les
approches et projets connaissent des succès ou des échecs dans tel type de conditions bien spécifiques.
Finally the Congress permitted us to learn from others, to compare our experiences and to develop rich networks of friendship.
The costs of accountability processes are huge and sometimes tend not to be considered very much. Accountability has to
hold on to account for its costs and its benefits. Those accountability costs are multiple: time, money, personal and organisational attention, political sensitivity, reputations, careers, etc.
Improving Administrative Sciences Worldwide
Of course, and this is one of the very utilities of accountability, it will raise multiple social debates, not always learned, fair and
under control, and will lead to ask for more information from the administration…which in turn may create more costs.
CONTEXTUAL READING
Les ministres et hauts fonctionnaires ne se font pas toujours très chauds à dévoiler des objectifs et cibles précis, de crainte
qu’ils ne soient pris au mot, malgré un contexte changeant qui justifierait des adaptations des prévisions.
Ils ne sont pas non plus trop enthousiastes à informer le public et les contrôleurs en temps réel au sujet des difficultés vécues,
de peur que les réactions, suggestions et imprécations ne viennent que brouiller le tableau et rendre la situation plus difficile et
inextricable. Comme règle générale, l’imputabilité ne doit pas interférer avec l’action.
L’imputabilité peut aussi nourrir le cynisme des citoyens dans la mesure où rien n’est parfait et que les contrôleurs comme
les médias insistent plus sur ce qui ne va pas ou même sur ce qui est à améliorer que sur ce qui fut bien réalisé, quelle que
soit la proportion de ce qui fut bien réalisé. À cet égard l’opinion publique doit vivre un processus de maturation dans lequel
elle saura finalement apprécier les efforts et les progrès réalisés tout en condamnant pas de manière globale et définitive une
administration qui a encore du progrès à faire. Ce cheminement ne sera pas facile tant est acquise l’idée préconçue de la
mauvaise santé de l’État et de ses agents ainsi que les suspicions tenaces d’indifférence et de corruption chez les dirigeants
politiques et fonctionnaires.
I find it extremely interesting those provocative remarks submitted by Christopher Pollitt suggesting an anthropological look at
the governance process and accountability across the history of human kind and the diversity of traditions. Why the accountability process as known in the developed world would apply easily to those areas of the planet with different values, interests
and traditions. Even into the northern part of the world one is struck by the rapidity of change in the governance culture over
the last 50 years. How it made place for accountability, performance and human rights.
Here is a model of what could be understood in matter of accountability environment and dynamics. All links do matter in terms
of saliency and quality of execution.
From oustide
*International
*Media
*Social
*Groups
*Multi Level
Chain
Institutional
Links
Multiple inputs
From inside
*Admin
*Central
*Horiz
*Parl
Transparency
Engagement
Sanctions
And
Continuous
Ressources
Outputs
Outcomes
*Indicators
*Targets
Multiple
Reportings
Actual Production
and Readings
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TOWARDS A NEW WORLD: SOME INCONVENIENT TRUTHS
FOR ANGLOSPHERE PUBLIC ADMINISTRATION
by Prof. Dr. Christopher Pollitt (UK)
It is easy to get the impression that most new ideas in public management come from the ‘Anglosphere’. These would include
the ‘New Public Management’ and ‘governance’, together with a host of specific techniques such as TQM, benchmarking,
contracting out, the autonomisation of public agencies, Public-Private-Partnerships and Lean. Anglophones have also tended
to take prominent roles in those international bodies which are most influential in public management reform, particularly the
OECD and the World Bank. Furthermore, the top PA journals - the ones that most young academics aspire to publish in - are
U.S. or British in origin, and remain English in language. Finally, in the background, we have the continuing growth of English
as the new ‘world language’.
In this lecture, however, I would like to argue that, for several disparate reasons, this apparent dominance is already fading, and
is likely to diminish further over the next decade. These reasons include the following:
1. The dominance of Anglophone ideas has always varied by country and region, and continues to do so. NPM, for example,
was for long ignored or resisted by many countries, or was adopted in ways that transformed it.
2. The results of Anglophone public management reforms are now being questioned. Not only have they often visibly and
palpably failed when applied in the developing world, their track record even in their ‘home countries’ of the UK and the USA
has now been seriously questioned.
3. There are signs that some of the leading academic institutions in the Anglophone world are developing the subject in directions that take it further and further away from practical application. The gap between academic concerns and practitioner
concerns may be widening.
Braibant Lecture
Conférence Braibant
4. China, Eastern Europe and Latin America are increasingly important voices in the international public administration community, and in many cases they have strong administrative cultures and traditions of their own. For these and other reasons
they are unlikely to just buy Anglophone ideas ‘off the shelf’. They may not see them as directly relevant to their own
problems. Furthermore, the future fiscal contexts in these regions are very unlikely to be the same as the austerity which will
continue to dominate the UK and the USA.
In conclusion I will speculate on some of the implications of this analysis. It may be that English remains the dominant language
of the international public administration community, but the hunger for ideas of English and American origin soon becomes a
thing of the past.
VERS UN NOUVEAU MONDE :
QUELQUES VERITES QUI DERANGENT POUR L’ANGLOSPHERE
DE L’ADMINISTRATION PUBLIQUE
par Prof. Dr. Christopher Pollitt (UK)
Il est facile d’avoir l’impression que la plupart des nouvelles idées en matière de management public proviennent de l’ «
Anglosphère ». Celles-ci comprennent le « New Public Management » et la « gouvernance », avec une multitude de techniques
spécifiques telles que le TQM, l’étalonnage, la sous-traitance, l’autonomisation des organismes publics, les partenariats,
public-privé et le « Lean government ». Les anglophones ont aussi eu tendance à jouer un rôle de premier plan dans les
instances internationales qui sont les plus influentes dans la réforme de la gestion publique, en particulier l’OCDE et la Banque
mondiale. En outre, les meilleurs journaux d’AP - ceux où la plupart des jeunes universitaires aspirent à publier - sont originaires
des États-Unis ou du Royaume-Uni, et demeurent en langue anglaise. Enfin, en trame de fond, nous avons la croissance
continue de l’anglais comme nouvelle « langue mondiale ».
Cependant, lors cette conférence, je tiens à soutenir que, pour plusieurs raisons disparates, cette domination apparente
s’estompe déjà, et est susceptible de diminuer encore au cours de la prochaine décennie. Ces raisons sont les suivantes :
1. La domination des idées anglophones a toujours varié selon les pays et les régions, et cela continue. Le NPM, par exemple,
a longtemps été ignoré ou combattu par de nombreux pays, ou a été adopté de manière à ce qu’il soit transformé.
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2. Les résultats des réformes de la gestion publique à l’anglo-saxonne sont maintenant remis en question. Non seulement, ces
réformes ont souvent, visiblement et manifestement, échoué lorsqu’elles sont appliquées dans les pays en développement,
mais leur bilan est sérieusement remis en cause dans leurs pays d’origine même, en Grande-Bretagne et aux Etats-Unis.
3. Il y a des signes que certaines des plus grandes institutions universitaires dans le monde anglophone développent le sujet
dans des directions qui l’éloigne de plus en plus de l’application pratique. Le fossé entre les préoccupations académiques
et celles des praticiens est peut être bien en train de s’élargir.
4. La Chine, l’Europe orientale et l’Amérique latine sont des voix de plus en plus importantes de la communauté internationale
de l’administration publique, et dans de nombreux cas, ils ont de solides cultures et traditions administratives qui leurs
sont propres. C’est entre autres pour ces raisons qu’ils sont peu susceptibles d’acheter des idées anglophones « clés sur
porte ». Ils ne peuvent pas les voir comme directement pertinente pour leurs propres problèmes. En outre, les contextes
budgétaires futurs dans ces régions sont très peu susceptibles d’être les mêmes que l’austérité qui va continuer à dominer
au Royaume-Uni et aux Etats-Unis.
En conclusion, je spéculerai sur quelques-unes des implications de cette analyse. Il se peut que l’anglais reste la langue dominante de la communauté internationale de l’administration publique, mais la faim des idées d’origine anglaise et américaine
sera bientôt une chose du passé.
Intercontinental
Administrative Forum
Forum administratif
intercontinental
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25
Intercontinental Administrative Forum
Forum administratif intercontinental
Summary of prof. Dr. Jacques Bourgault, Cofap Inc., Uqam_Enap, Canada
Fifth, politicians were asked to put aside politics and address more candidly and completely the citizenry about the serious
issues of modern governance. When they had to answer the MPs, the media, the interest groups or the public, it was awaited
that real issues were put on the table. This reform seems still awaited
Finally external technical help was seek for the ministers. This has happened on a larger basis than it had ever been in
the past. Pressure groups, think thanks, external advisors were asked to provide advice on political decisions about policy
conceptualization but also program delivery. Some of them were even charged of delivering the programs, some others for
evaluating various aspects of a policy. Of course all this is done alongside with the ministers’ and pressure group’s ideology.
How do the reforms look like as of today?
CIVILITIES…
I will regard some Western and some African countries since 1994
The presentation will discuss the success of reforms across the last 20 years. It will address the norms of so-called success,
the extrinsic factors that contribute to reforms success and the conditions of reforms’ success. Finally the politico-administrative conditions for success will be addressed.
Understanding the success of reforms
• What are the norms of so-called “success”: what is a success? Academics, acting as critics and sceptical, tend to consider
all reforms as failures.
- If a reform is not delivered 100% as planned, some may say, which is not my case, the reform cannot be a success or is
a failure. In fact it is a good thing some plans were modified because the plans are not perfect and moreover, reality may
have changed since the plan was drawn.
Civil society asks for reforms more vocally than ever. It also requires to be included in each and every steps of reforms.
Reforms, by comparison to the sixties, have moved from work processes to debate the very role of the State and of its administration.
The time lapse between the beginning and the end of the reform process is shorter. This represents a real danger in terms of
social dialogue, consideration of all aspects involved and the fine tuning of the reforms.
Of course one cannot overlook the role that IT plays nowadays in all aspects of reforms: specialists may create special intranet
cells of ongoing dialogue, go to crowdsourcing, access to more data and benchmarks than ever. Many reforms are about IT
to reduce the manpower costs and facilitate the data production and reading in real time.
- Academics are of diversity of opinions and ideologies: one cannot please all of them at the same time.
Nowadays reforms encounter more challenges because civil society is more aware of their issues and potential shortfalls.
There are many more information channels and they are richer than ever. Information is more available to citizen and groups,
people are more easily mobilised, and dialogue could go on in total parallel of the administration.
- I tend to think that at the very moment a reform is drafted, it is already in the process of implementation: some people
want to be ahead of the trend and they want to show they are modern, cooperative and willing to cope with the marching
orders…in fact, some may want to demonstrate they would well fit as king of the new kingdom.
More and more, the reform process is bottom up rather than top-down. Hierarchy meets the challenge of matching the front
line bureaucrats and citizen expectations. The process is less controlled than it was in the past.
- It raises also the point of what is a reform? Parametric budget cuts are not a reform, although they may impact heavily
on the administration.
Reforms, financial and nonfinancial, are included into the budget. Not necessarily into the budget process like it was the case
in my country from some important reforms. This tends to diminish the time and the richness of the debates.
• the extrinsic factors that contribute to reforms’ success/failure: hard to predict in a globalised wold and a world that evolves
rapidly with the technological and scientific knowledge
Continuity…about…reforms
Over the last 20 years, most of the reforms were about saving costs: they consisted of revisiting the missions of the State,
the administrative structures, the processes, the total of jobs involved as well as the, competencies needed to carry out more
efficiently the work.
Another main purpose of the recent reforms in the northern countries is finding how to increase the service to citizen: they
looked not always for more quantity but surely for more quality (appropriateness concept) through better delivering devices,
better conception of the products, and moreover with better processes of citizen feedbacks (different types of surveys, processes to address complaints, websites, etc.). No one can minimize the impact of IT in the conceptualization of the
products and processes of preparation and delivery. Those raised also issues like confidentiality, quality assurance and
security.
A third trend I observed is the debate over what would be the legitimate role for political masters. how far should they
go when it comes to configure policies and programs.
The political masters have come to reduce/minimize the role of professional bureaucrats.
This is for many reasons. First, knowledge evolves always more rapidly and it is no more possible for bureaucrats to be ahead
of the parade like it was in the sixties; second, bureaucrats are no more the exclusive possessors and guardians of knowledge
in the society, being joined by interest groups, media, academics, etc.; third the media pressure is always growing up and
they feel they need to be more in control and less dependable on the bureaucratic machine. Of course issues arise like public
interest considerations, long term perspective, politicisation, reduced access to public goods for the opposition, etc.
Fourth, the recent interest for reforms included research for accountability designs: what are the political masters
really responsible and responsive of? This included processes for making senior officials appear before parliamentary
committees; processes for having factual and serene debates in the House; processes for budgeting more limpidly; processes
for more transparency; specialized parliamentary institutions for controlling politicians and bureaucrats.
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The changes within the reforms
Reforms tend now to revamp the role and importance of national governments, as prominent actor in the middle of the civil society
governance. Facing globalization, the national interests need a national facilitator and reforms tend to acknowledge this.
More and more, people realize that any reform will not culminate and terminate. It is now an ongoing process and people have
the conscious choice either to ignore this or to function with this. Society, science and technology move so fast, so rapidly and
interests groups can adjust so fast that no solution is meant to be definitive. Reform in all domains is an ongoing process that
will pay off only the more disciplined, astute and determinate countries
Success of reforms?
The two main politico-administrative conditions for success are the unified leadership and the 360 degrees ongoing communication.
Here is a list of the internal conditions of reforms.
There is a need for a shared reading of the problem. All the stakeholders need to accept the reading process, agree upon the
salient data and understand those data the same way. Of course strong and solid undisputable data are the ideal. No reform
can survive long the lack of documentation. It will rarely happen everyone will understand the situation the same way. But the
largest consensus will facilitate the acceptation of the new constrains.
The governing party or coalition has to demonstrate a resolute desire to conduct the reform and expect there will be pressures
and conflicts they will have to go through.
Preparing public opinion is key and could take some time. Sparing this time would mean one need more authority, strength
and repressive measures to enforce the reforms. Such reforms may reveal more fragile in times of conflict, and overtime. Finally
they may be targeted by sabotage.
Unification at the top is crucial: Ministers and Senior officials need to be on the same page (hopefully on a “good” page!). To
facilitate this, a committee of ministers should protect the consensus and the road map. The same should be said for senior
officials. An integrating device would closely coordinate both. It is fatal for a reform when a stakeholder discovers how to
get through the net meshes and can get away with this tactic. It is also fatal when a senior personage makes statements or
decisions that do not respect the game plan.
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The central agencies (political and administrative) play an important role into the process. At their lervel they provide reliable
data, arguments to prepare the positions at the top. The also provide the instrumental supervision of the reform implementation. They have to make sure the implementation is according to the decisions taken.
All departments and categories of citizen should be affected by a reform: this will render its difficult issues more acceptable to
each and everyone.
The horizontal integration of senior officials provide and immense advantage to the countries who could benefit from a senior
public service that cares more about a government as the whole than about their own department they administer. Horizontal
devices such as churn, multi-departmental committees, peer performance appraisal, bonus pay ,etc. will help deeply.
Reforms cannot only be dictated on the basis of authority. One has to offer win-win solutions to those impacted by reforms.
Well designed and controlled short time costs may well provide long time savings.
Overpromising is a classical in the art of traditional politics. But overpromising and under-delivering does not pay off politically
and tends to render everyone more cynical: why suffer for an impossible task? To become a hero and create high morale, i is
better to overpromise the need for efforts and under-promise the results.
Fiscal reforms need a clear and understandable financial target, like other reforms need clear outputs on a visible calendar.
Without precise targets, reforms will fail to progress.
Higher authorities should state the general objectives and constraints but let the first line people decide the specific “whats”
and “hows”. Those who know the terrain do know better. People should adapt the principles to their real situation as long as
they respect the logics and constrains of the reform.
Whenever a process has begun, a reformer should keep on track. There is an obligation to foresee the complaints and to keep
on and not lose the pace. Be firm on objectives while you are negotiable on the reasonable means.
One of the most important keys is the consolidated leadership of the authorities, once the decision is taken. One leader could
not be able to stand up and offer it’s preferable solution while the others try to keep the package together.
Of course communication is essential. It has to be a 360 degrees communication. All stakeholders should be included…if not
some will try to sabotage the reform. Communication means also to listen and have a complete and frank conversation with
all the stakeholders. Authorities have to get to the terrain, the exchanges have to be frequent, messages have to be clear and
be based on the real facts. There is a need for coherence in all messages and this coherence should be met at all levels of the
organization or government.
Reports on the Study Groups
Since the same causes tend to produce the same effects, it is important that reforms are a continuous process. For example,
reviews of programs should be ongoing and not only when the situation becomes really dramatic.
Summary of Prof. Dr. Christopher Pollitt’s presentation by Prof. Dr. Jacques Bourgault
Prof. Dr; Christopher Pollitt suggested that NPM has often produced a rupture more in discourses than in practices. Reforms
have always been on the agenda and seldom achieved the forecasted results…sometimes for the best! Importantly, however,
when reforms were implemented - for better or worse - it was not always possible to go back.
Reforms are kind of a continuous agenda in most countries, said Prof. Dr Pollitt. Politicians, senior officials and consultants
have discovered that promises are cheaper than art. From our research, it appears that there is a serious need for well-planned
reforms, and reforms that would address real needs. There are particular dangers when reforms are highly politicized or when
reforms happen in countries where political change is frequent or political power is weak.
Pollitt asked: Are reforms followed by actual results? It is difficult to provide clear answers from existing research. In my Institute
in Leuven, Belgium we have looked at more than 520 studies in Europe. Only 9% of these studies gave definite evidence of
positive outcomes, and within that minority of studies 44% of the outcomes were improved, 23% were worse, and 33% were
unchanged. More studies gave information on changes in outputs, but even in this category only 53% were assessed as
definite improvements. So there is a need to be modest about chanting victory with reforms. They look like a hit or miss affair,
particularly when they present unselected measures. Is the wine glass half full or half empty?
Of course austerity policies have a huge impact on public service reforms. In many countries reforms are of Pre-NPM inspiration. The most common kind of cut is across-the-board and is not selective with regard to effectiveness or efficiency. Often
reforms are driven by austerity policies: hence, they are of a particular species and do not respond to the same triggers.
Finally, Prof. Dr. Pollitt offered remarks about reforms in Europe. Europe provides a complex terrain for reform with its varying
political systems (majoritarian, consensus-oriented, corporatist etc), multilayered administration and different accountability
systems.
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PST I: Public Administration, Democratic Governance
Poverty Alleviation
By Prof. Dr. Pan Suk Kim, Yonsei University (Korea) and
Mr. Demetrios Argyriades, Management Consultant (Greece/USA)
Six years into the Recession and fully fourteen years after the U.N. Summit, of September 2000, which produced the landmark
Millennium Declaration, global poverty remains at the top of global agendas, though arguably now sharing this unenviable
prominence with fears from climate change. Though acknowledging successes on some limited fronts, the Panel chose to
focus on some of the causes of failure chiefly in a model of governance and public administration, which triumphed in the
nineties and, remarkably, endures in several parts of the world (IIAS 2002). It comes as no surprise that countries where
this model made deep inroads are often those where the alleviation of poverty made scanty progress and where, in terms of
income, prospects and opportunities, the middle classes stagnate. Withdrawal of the State has mostly proved inimical to the
welfare of the poor, the weak and dispossessed. Experience has been different in States that are still served by competent
professionals; where governments remain at the forefront of the struggle for social justice. This comes as no surprise, but
needs to be re-stated and publicized in some degree of detail. Precisely on this account, Public Administration, Poverty
Alleviation and Democratic Governance became the theme of the Panel, in June.
The Panel, in effect, was intended to introduce a forthcoming publication of the IIAS on the challenges, world-wide, of poverty,
not only in terms of the plight of those who live in want but also of its effects on democratic governance. How public administration ought to address this issue and bring corrective action to bear on this global concern was, in sum, the theme of the
Panel. The Panel consisted of six people, all closely associated with the IIAS and its new publication. It included Professor
Geert Bouckaert, President of the IIAS; Professor Michiel De Vries, President of IASIA; M. Rolet Loretan, Director-General of the
IIAS; Professor Pan Suk Kim, past President of the IIAS and Editor of the book; Mrs. Geraldine Fraser-Moleketi, former South
African Minister of Public Service and now Special Envoy on Gender of the Africa Development Bank; and, finally, Demetrios
Argyriades, Rapporteur of the Working Group, which implemented this project. The project is divided into two principal parts:
one thematic and one geographical. The former is intended to explore the major challenges subsumed under the title of
poverty alleviation; the latter offers accounts of the experience in waging war on poverty, in all the world’s main regions. Now
concluded, this compendium has been complemented with abstracts in the Institute’s two languages. It may appear in print
by early next year and, hopefully then, be translated into Arabic, Chinese and Spanish, so that it may be accessible to readers
truly world-wide.
How shifting ideologies impact the war on poverty was forcefully brought out in the twin presentations of Drs. Pan Suk Kim
and Michiel De Vries. They delved into the experience of many a developing nation and of development programmes, in
different parts of the world. They noted the success of some emerging countries, China and India especially, which offer a
sharp contrast to baffling failures elsewhere, even in parts of the globe that are blessed with abundant resources. Although the
Great Recession, which still afflicts the world accounts, to some extent, for some loss of momentum, the staggering disparities
in national performance on the War-on-Poverty front has raised a number of questions, which certainly defy an easy answer.
Conceding that fortuitous or other factors occasionally weigh in, affecting some countries adversely but benefitting others, both
Drs. Pan Suk Kim and Michiel De Vries concluded that sound strategies and an effective government, between them, held
the keys to successful implementation in poverty alleviation. All panelists concurred that public administration and democratic
governance represent the weightiest factors, which between them make the difference between success and failure. There
is more than meets the eye, on the other hand, and the discussion showed that much, in fact, depends on what we call
“democracy”, as well as on the spirit of public administration, in any given country, which sets its definitive stamp on the public
service profession.
At the root of it all, as Mrs. Geraldine Fraser-Moleketi aptly observed, one may discern an instrumental concept of governance and management; government seen as a “tool-kit”, as little more, in fact, than pure instrumentality, intended for limited
purposes. This view, still current today, was probably introduced by the Chicago School and the New Public Management. A
change of terminology induced a shift of focus from ends and fundamentals to the means and resources of governance. Partly
because, “big government”, during the nineteen-eighties, was used as a term of opprobrium, “governance”, an 18th century
term, was re-introduced and, later on, “good governance” foisted on public debates mostly in opposition to government.
Public administration was redefined and reduced to public management which, in turn, was reinvented in private sector ways.
The public service profession lost its shine as a result and the concept of general interest also depreciated (Fraser-Moleketi
2012; Dwivedi, et al. 2007:121).
As panelists remarked this “market model” of “governance” went in tandem with a trickle down approach to economic
development. This doctrine held that progress and poverty alleviation should properly start “at the top”, “with private-sector led development activity.” (World Bank 1994: xvi) Accordingly, the proper roles of government and administration were
building and maintaining a business-friendly environment. Regulation and state intervention in the economic sphere were
strictly frowned upon. To many, they smacked of “bureaucracy”. The proper role of government, so “minimalists” argued,
lay in domestic security, the administration of justice and military preparedness, as well as foreign affairs. Partly due to the
Recession the model lost its shine but much damage had been done. The damage has taken the form of a progressive shift
away from a needs-assessed and collective provision of welfare. It also took the form of a huge capacity deficit (Dror 2001).
This resulted from withdrawal of a proactive government from many a critical area of vital concern to the citizenry and from the
systematic dismantlement of structures, which underpinned the edifice of the Administrative State. It has been demonstrated
that countries, which safeguarded their core institutional structures weathered the crisis better. The point was emphasized and
runs as leitmotiv throughout the upcoming book.
One of the damaging outcomes or a rampant capacity deficit is the observable decline of public trust and overall public support
for the institutions of governance. World-wide, examples abound, especially in activities requiring cooperation between professional cadres and members of the public. This gulf and alienation of segments of the population have surfaced in conjunction
with a phenomenal surge of corruption and abuse. The new IIAS publication has rightly given prominence to this calamitous
trend. It also emphasizes the pernicious effects of corruption in the public sphere, especially on the poor, the dispossessed and
minorities. It is no exaggeration that, as the panel argued and our new book will show, we are witnessing the emergence of a
new profile of poverty in several parts of the world. Beyond the known symptoms of poverty, whether absolute or relative, many
countries are confronted with phenomena of exclusion, rising privilege, inequality, insecurity, “instability at home and work”
(Coontz 2014:SR1 7) and the marginalization of poverty-stricken residents and immigrants alike, on an alarming scale. The
effects of these phenomena are still hard to forecast but generally point to a visible surge of extremism, religious and political,
with ominous forebodings. Distrust and disaffection, despair and alienation, the radicalization of major militant groups often
take a violent turn, with weapons easily available, thanks to a flourishing arms trade.
We may not like to admit it but government passivity in the face of widespread poverty, coupled with lack of prospects, in the
midst of wealth and privilege can be sources of disaffection leading to at best indifference or, at worst, open hostility towards
democratic governance. At stake, as the Panel saw it, are democratic values exemplifying a sense of civic responsibility, respect for inclusion and pluralism, moderation, accommodation and compromise. These are those very values which underpin
the structures of multilateral goverance on both the national and international levels.
References:
- Argyriades, D. and Gerard Timsit (eds. 2013) Moving Beyond the Crisis: Reclaiming and Reaffirming our Common Administrative Space - Pour dépasser la Crise: un espace administratif commun, Brussels, Bruylant and IIAS.
- Coontz, S. (2014) “The New Instability” in The New York Times Sunday, July 27, 2014, pp. 1SR 1 & 7SR.
- De Vries, M. and Kim, P.S. (eds. 2011), Value and Virtue in Public Administration: a Comparative Perspective, Basingstoke,
Hants, Palgrave, Macmillan and IIAS.
- Dror, Y. (2001) The Capacity to Govern”, London, Frank. Cass.
Shifting perspectives and clashes on the above-mentioned subjects, throw light on the developments of the past three
decades. M. Rolet Loretan, Director General of the IIAS, described them as amounting to a veritable paradigm shift. Professor
Geert Bouckaert spoke of the need to recover the essence of democracy itself; the need to embed the principles of the French
and US revolutions into the functions and structures of government. Both stressed the pressing need to move beyond a
definition of democracy in purely terms of process; as chiefly majority rule, with periodic elections. It was recalled, in fact, that
since the early nineties, great hopes had been invested in plebiscitary “rituals”, in several parts of the world. They vanished
like the morning mist with the economic crisis, political turmoil and the collapse of government, which still deeply affect vast
swaths of the world.
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- Dwivedi, O.P., R. Khator and J. Nef (2007), Managing Development in a Global Context, New York, Palgrave Macmillan.
- Fraser-Moleketi, G.J. (2012) “Democratic governance at times of crisis: rebuilding our communities and building on our
citizens in International Review of Administrative Sciences, Vol. 78(2), pp. 191-208.
- International Institute of Administrative Sciences (IIAS) Governance and Public Administration in the 21st Century: New
Trends ad New Techniques – General Report, Brussels, IIAS, 2002.
- Krugman, P. (2014) “The Show-Off Society”, The New York Times, Op-Ed, Friday, September 26, 2014, p. A31.
- World Bank (1994) Governance: The World Bank’s Experience, Washington, D.C. the World Bank
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PST IV: Quality of Governance
By Prof. Leo Huberts, Vrije Universiteit Amsterdam (The Netherlands)
The Study Group on the Quality of Governance is involved in developing the agenda on research and policy development
on the Quality of Governance, with attention being paid to topics as ‘Good Governance in Context’ (What values matter
in governance processes and output and how are value conflicts managed?), ‘Bad Governance in Context’ (the content,
causes, and effects of corruption and other integrity violations) and on ‘Quality of Governance policies, systems, instruments,
leadership (process)’ (What ‘integrity system’ helps…?).
In Ifrane we organized two sessions, building on the launching seminar in Amsterdam (2012), and sessions of the SG at the annual
conferences of the American Society for Public Administration (ASPA March 2013, 2014) and the IIAS conference (June 2013) in Bahrain.
The second panel-session was ‘Political-administrative relations at the subnational and local level’. The discussion was chaired
by David Ferraz and Caspar van den Berg. Two papers were presented and discussed:
• Paper 1: Rosa Groen (The Hague University of Applied Sciences, Leiden University)
Politics and International Organizations: four cases in The Hague and Geneva
• Paper 2: David Ferraz (National Institute of Administration, Lisbon)
The selection of senior Civil Servants in the context of the different public administration models: an issue of
accountability?
Afterwards, the group discussed several topics, as different public administration models, professionalism versus politicization,
the political game versus the objective criteria, the concept of New Public Service and data analysis. The abstracts of the
papers are found below this report
III. The Road Ahead:
The two Ifrane sessions focused on ‘The Challenges to Good Governance’ with a focus on the public values involved and on
‘Institutions of Good Governance’ to safeguard the quality of governance. Papers were presented and discussed with a lively
discussion with about 20 participants from five continents.
That also resulted in ideas for further sessions, to start with the 2015 ASPA annual conference (with a special full day preconference workshop of the SG on the key values of good governance at March 5th, 2015; see www.aspanet.org) as well as
in ideas on how to progress into SG publications on the quality of governance.
The Study Group on Civil Service and Politics has identified three broad themes with which it will proceed towards the next IIAS
conference in June 2015. These are (a) Civil service politicization; (b) External policy advice and (c) Representation, trust and
bureaucracy. Soon, a call for papers on these three topics will be published, where scholars are invited to submit abstracts for
papers making use of qualitative, quantitative and mixed methods research designs. In addition, we propose to bring together
a separate panel consisting of senior civil servants from various countries to encourage the academic-practitioner debate also
within our study group.
Abstracts of papers presented at the Study Group IX: Civil Service and Politics
When you are interested in information on or participation in the SG on the Quality of Governance, please contact Hester
Paanakker ([email protected]).
PST IX on Civil Service and Politics
By Dr. Caspar F. van den Berg, Leiden University (The Netherlands) and
Mrs. Rosa Groen, The Hague Univesity of Applied Sciences (The Netherlands)
I. Information on the Theme:
Executive governments are faced with increasing societal and political pressures. Such pressures may derive from, amongst
other factors, increased electoral volatility and polarization, changes in mass media and communications, increased freedom
of information and government transparency, and the internationalization of policy challenges. Presidents, prime-ministers and
cabinets have found and indeed used different responses to such pressures, many of which include either attempts to delegate
responsibility outward (such as privatization, agencification, decentralization, Europeanization), and/or attempts to increase grip
on their sphere of responsibility (such as performance management, audits, politicization, increased media management). Each of
these responses may have substantial consequences for the interaction between politicians in government and their civil servants,
and for the positioning of civil servants vis-à-vis their political superiors. The panels address the following questions:
• What is the impact of the heightened pressures on the executive on the relationship between civil servants and politicians?
• To what extent are changes in political-administrative relations similar across countries and continents?
• How is the policy advice function of civil servants and external policy advisers changing?
• To what extent is the degree of civil service politicization increasing or decreasing and in what manner?
• What are the key drivers for civil service politicization?
• To what extent are changes in political-administrative relations specific to national level government or comparable
across the local, regional, national and international layers of government?
II. Report of the rapporteurs on the workshop sessions based on the call for papers
Two successful panels took place on Saturday June 14th 2014 in Study Group IX. The first panel on ‘Policy-advisory systems’
was chaired by Jonathan Craft and Caspar van den Berg. Three papers were presented and discussed:
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• Paper 1: Jonathan Craft (University of Toronto)
Political-Administrative Dynamics and Advisory System Stability and Decay
• Paper 2: William Resh (University of Southern California Price School of Public Policy)
Controlled Chaos: Goal Entropy, Performance, and Appointed Leadership Continuity
• Paper 3: Caspar van den Berg (Leiden University Institute for Public Administration, The Netherlands) Patterns of
Politicization in 14 Democracies
A lively discussion took place about the study of civil service politicization and the examination of policy
advisory systems using mixed methods research designs.
Paper 1: Jonathan Craft Political-Administrative Dynamics and Advisory System Stability and Decay
The concept of ‘policy advisory systems’ first introduced by Halligan (1995) provides a useful means to characterize and
examine the multiple sources of policy advice utilized in government policy work. Conceptually, it has influenced thinking about
both the nature of policy work in different advisory venues as well as how these systems may change over time. Early, or ‘first
wave’ approaches emphasized the spatial distribution of policy advice and government control over its supply as key dynamics.
This article argues that it is time to move towards ‘second wave’ advisory studies that capture other dynamics related to the
stability and decay of advisory systems. To do so, it suggests integrating policy networks literature into the advisory systems
studies. It uses policy network theory to integrate considerations of ‘accessibility’ and ‘policy goal alignment’ commonly
deployed in subsystem modeling to examine the heterogeneous character of advisory systems and political-administrative
relations. Using these two dimensions, a taxonomy of ‘advisory subsystems’ is set out based on their ‘open’ or ‘closed’ nature
and the degree of congruence or ‘alignment’ between subsystem and advisory system policy ideas. The article concludes by
suggesting two avenues to move second wave advisory studies forward based on subsystem-advisory system interaction and
policy regimes based approaches.
Paper 2: William Resh Controlled Chaos: Goal Entropy, Performance, and Appointed Leadership Continuity
In the United States, increased partisanship, interbranch competition, and recognition of appointments as an effective tool of
presidential power have combined to produce extensive delays in Senate confirmation of presidential appointees, increased
rates of turnover in these positions, and extended lengths of vacancy. This study examines these issues of appointee politics by
scrutinizing the potential impacts that turnovers and vacancies in presidentially appointed positions have on US federal agencies
in two ways. First, I introduce a theory of “causal goal entropy,” in which the complexity of an organization’s goal environment
determines its ability to meet any given goal. Second, I examine the possibility that when an organization reaches a state of
meeting a majority of its goals, that it will seek more entropy—i.e., its goal environment will become more complex—under
conditions of stable leadership. Combining two original data sources—a detailed longitudinal roster of presidential appointment
positions and the officials who occupy them from 1989 to 2009 (Government Appointees Project) and qualitatively coded U.S.
agency Performance & Accountability Reports (which provide strategic goals, specific annual performance targets based on
the agencies’ strategic plans, and whether the actual performance results meet the targets)—with administrative personnel,
Congressional, and presidential records, the study employs time series regression techniques to model the temporal impacts
of appointed leadership continuity and vacancies on goal setting and organizational performance.
Paper 3: Caspar van den Berg Patterns of Policitization in 14 Democracies
One of the often-cited determinants of state legitimacy and overall government performance is the interface between politicians and bureaucrats, in other words: the balance between (a) political control over the bureaucracy to ensure democratically
accountable governance, and (b) the insulation from political intervention in administrative business to ensure quality and
effectiveness. While increasing politicization, i.e. the existence of political elements in otherwise apolitical government bureaucracies is often reported as a general trend, our empirical knowledge as to the causes and consequences or this phenomenon
is patchy and contradictory.
This project will answer the question under what circumstances politicization is more likely to occur than others and what
impact politicization has on government legitimacy and performance, by investigating four policy sectors in 14 OECD countries
in Europe, North America and East Asia.
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From a methodological perspective, the application of multi-value qualitative comparative analysis (mvQCA) to politicization has
not been done before and enables a larger-N approach, leading to more generalizable findings. Collaboration with international
organizations and local partners in the 14 countries is a key element of the study.
The findings will shed empirical light on the sources, incentives and impediments of civil service politicization, and its harm
or benefits to ‘good governance’. This knowledge fills an important gap in the body of knowledge of Public Administration
and Political Science, and will provide the policy community with better-informed avenues to respond to decreasing trust in
government and decreasing policy effectiveness.
The overall aim of the study group is to collect, encourage and synthesize practical experiences and research in disaster
prevention and crisis management from a perspective of public administration and organizational analysis. The study group
aims at the systematic identification and discussion of administrative capacities and arrangements to prevent, prepare for,
respond to and recover from disasters and catastrophes. For this first meeting of the working group there was organized a
panel to further develop the research questions to be tackled and to sketch the future workings of the study group. Originally
three sessions with nine different contributions were planned, but due to some late drop outs for visa and health reasons, only
five papers could be presented and discussed:
• Werner JANN (Potsdam University, Germany) started with a general paper sketching the overall research questions and
central concepts in this area: ‘How do we deal with wicked problems? What Climate Change, Sustainability Challenges
and Georisks mean for Governance’;
• Hideaki SHIROYAMA (Policy Alternatives Research Institute, University of Tokyo, Japan) followed with a paper about
‘Regulatory “Failure” of Japan’s Nuclear Safety Regulation and Its Reform – issues of inadequate interdisciplinary communication’;
• Kazuyuki SASAKI (Meiji University, Japan) and Sachitoshi ISAGO (Tokiwa University, Japan) presented a paper on ‘The
Impact of the Great East Japan Earthquake to Citizens’ Behavioral Patterns and their Trust to Public Sectors’
• Anaïs SAINT (Centre d’Etudes et de Recherche en Gestion d’Aix Marseille, France) presented a paper ‘Contributions of
an “HRO culture” in the management of catastrophic accidents: the case of French rescue teams; and
• Kaddour MEHIRIZ (Institut national de recherche scientifique, Canada) a paper on ‘An analytical framework for evaluating
heat waves warning systems’ contribution to public health and safety’.
Paper 4: Rosa Groen Politics and International Organizations: four cases in The Hague and Geneva
In Western Europe, cities that host International Organizations (IOs) have to deal with more and more competition. Since the
1980s the number of new IOs increased massively, along with host states and cities. The last decade many new IOs settled in
Eastern European and Asian countries. Distributing IOs over several cities in Europe for reasons of political balance and giveand-take among governments as well as the diversity of nationalities in IOs also play a role in these decisions. For example,
the relocation of the European Police Academy Cepol from the UK to another European country depends on the nationality of
the new head of Europol in The Hague. Will this be a Spaniard, than Cepol won’t move to Spain. Will it be a Hungarian, Cepol
will not settle in Hungary. For IOs this political gameplay is equally important. In this paper I will discuss four cases in which
politics influenced the location decision-making of international organizations in The Hague and Geneva. First, I will introduce
the different layers of governance in the settling processes of IOs. Second, I will examine the national policy making strategies
towards IOs in The Netherlands and Switzerland. Third, I will try to reconstruct the negotiations that preceded the location
decision for four IOs: two cases of IOs that settled in The Hague and Geneva: OPCW (1993) and WTO (1995) and two cases
of IOs that seriously considered The Hague and Geneva but settled in or moved to other cities: Cepol (2014, moved from
Bramshill, UK, to Budapest, Hungary) and The Green Climate Fund (2012, settled in Songdo, South Korea). The empirical
technique will be research interviews with important actors in this diplomatic gameplay. This reconstruction of events sheds
light on the political processes of settling negotiations of IOs and on how the different layers of governance interact in these
negotiations.
Paper 5: David Ferraz The selection of senior Civil Servants in the context of the different public administration
models: an issue of accountability?
Despite the relationship between the politicians and the administrative actors has been studied with a scientific perspective
from the late nineteenth century, with the Wilson’ political-administrative dichotomy (Wilson, 1887) and his publication «The
Study of Administration», the true is that the debate about political-administrative relations remains till our days. There is no
consensus or unanimity on the best political-administrative model: a more political one, close to the values of political trust and
democratic representative, or a more professional one, more technical and therefore closer to neutrality and independence in
the public interest prosecution (Ferraz, 2008 and Ferraz, 2009; Madureira and Ferraz, 2010). In recent decades academics
tend to suggest hybrid models (Aberbach, Putnam and Rockman, 1981; and Aberbach et al. 1988; Hart and Wille, 2006;
Noordegraaf, 2007 and Ferraz, 2008; Lee and RaadsChelders, 2008 and Ferraz, 2009) contrarily to the total separation
between politics and administration, as Wilson had conceived. This hybrid models are more consensual because they preview
some convergence on the selection criteria, combining both political and technical values. However, the big question that
rises under this hybrid models is, where the boundary between politics and administration should be put? How hybrids are
those models? And what are the effects in the responsibility / accountability, both political and administrative, particularly in
the context of the public administration models evolution (which have different perspectives about the public managers’ role
in the public prosecution)? Taking this problematic into account it is the main intend of this paper to analyze how top public
managers have been chosen to public administration in the context of the changing patterns of State and Administration
models (bureaucratic model, New Public Management, New Public Service and neo-Weberian / liberal bureaucracy). Relations
between the characteristics of each model and the selection and accountability processes of top public managers should also
be done.
The discussions of these papers were very lively and well informed, and also a number of other participants from the conference
took part in them, amongst them David Brown (University of Ottawa, Canada) who informed about the publication project of
the former IIAS project group on Safety and Security. The members of the panel agreed that the theme of the working group is
very relevant and urgent, and that it should be continued and consolidated at the next IIAS conferences.
PST XVIII on Financial and Fiscal Administration
By Mrs. Ringa Raudla, Tallinn University of Technology (Estonia)
The Study Group XVIII on Financial and Fiscal Administration, coordinated by Ringa Raudla, Paul Posner, Joanne Kelly, Tobin
Im and Marco Cangiano, had its very first meeting during the IIAS Congress in Ifrane. The study group aims to establish an
international network of scholars who are interested in the topics of public finance, financial management and fiscal administration. The focus of the papers presented at the study group’s sessions was the impact of the crisis on fiscal and budgetary
decision-making. In particular, the papers dealt with the following issues: how have the governmental decision-making processes changed in response to the fiscal crisis, how have the governments dealt with the crises and what can explain the
variation in their responses, how well did the governments in various countries coordinate their responses to the crises and
with what effects, what kind of administrative and managerial reforms have been triggered by the crisis and how well have
they been implemented, what have been the political and societal effects of the austerity measures undertaken in different
countries. In addition to the impacts of the fiscal crisis and governments’ responses to the crisis, some of the papers dealt with
state-of-the-art issues in public finance and financial management, including accrual accounting and fiscal decentralization.
PST XII on Prevention and Management of Disaster
and Catastrophes
By Prof. Dr. Werner Jann, University of Potsdam (Germany) and Prof. Hideaki
Shiroyama, The University of Tokyo (Japan)
The Study Group XII on ‘Prevention and Management of Disaster and Catastrophes – How Administrations deal with Wicked
Problems’ met for the first time during the IIAS Congress held in Ifrane. The study group is organized by Hideaki Shiroyama,
Professor for Public Administration and Director of Policy Alternatives Research Institute, University of Tokyo (Japan) and
Werner Jann, Professor for Administration and Organization, University of Potsdam (Germany).
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Report on the Panel Max Weber and the many
disciplines of Public Administration
By Prof. Dr. Geert Bouckaert, Katholieke Universiteit Leuven (Belgium) and
Prof. Dr. Werner Jann, University of Potsdam (Germany)
The Max Weber Panel was organized by Werner Jann and Geert Bouckaert as part of the Potsdam-Leuven Project which is
sponsored by the Anneliese Maier Award of the Alexander von Humboldt Foundation. About 20 people attended this session which
focused on the relevance of the Weberian thinking for the current times of Public Administration as a field of research and teaching.
The session started with an overview of the key thoughts of Weber, and the translation of his thinking in post New Public
Management context, which could be labeled as Neo-Weberian State. The session then focused on the need to rethink the
foundations of our teaching and researching the field of Public Administration taking culture, disciplines, futures, and practice
into account.
The debate that followed amplified the need to re-invent our field. The people present offered to stay on board of platforms to
continue this discussion.
All participants were satisfied that this session was a great tribute to one of the founding fathers of our field, especially on the
occasion of his 150th anniversary, not from a historical point of view, but from a prospective vision on our field.
Host Country Panel / Panel sur le Pays hôte
Various Panels
By Prof. Abderrahim El Maslouhi (Morocco)
“Accountability and territorial governance in Morocco”
Accountability refers to the obligation that an agent has to inform, and to present evidence to justify the administration of a
property or a process on the basis of predetermined criteria and often agreed with the part involved. Entering this perspective,
accountability is wider than the account that it always involves other obligations to inform concerned part on the quality of interventions and how the account is managed, which implies passing from a quantitative accounting to a qualitative accounting.
The integration of accountability as an ethical and organizational requirements of public management was primarily due to
two factors: on the one hand, the rise of claims stressing the need to strengthen democratic control over public governance
systems, the accountability while being seen as a way for citizens - voters, consumers, taxpayers, individuals, etc.. – to control
the rulers; on the other side, the inclusion of public action in a logic of “managing for results” and managerial performance of
government departments and local authorities.
Along the way, territorial governance and decentralization practices are not remained lagged. Just as the principles of subsidiarity, proportionality, participation, solidarity and territorial equalization, accountability is seen as a mechanism that have
to contribute to the reinvention of decentralization policies and mechanisms of the local action. The institutionalization of
obligation to report at the local management then took various forms? To the judicial review of local finances up to community
media, through the traditional mechanisms of control, audit and evaluation mechanisms and spaces of citizen participation,
national laws on regionalization and territorial governance have constantly to innovate in this area. The traditional compliance
and control measures being less and less operating, the requirements of transparency, legality and efficiency leads citizens and
legislators to push further the responsibility of public managers by focusing on results.
Clearly, encouraging citizens to integrate the accountability reflex is not without positive impact on the quality of local governance. Except for periods of electoral mobilization, population usually has fewer tendencies to demand accountability from
their local representatives and often maintain an attitude of indifference to local governance. Indeed, with the institutionalization
of accountability mechanisms and responsibility, the promotion of related tools (access to information, public hearings, advertising budgets, periodic reports ...), citizens understand that there is no taboos in local governance. This will allow them to
have objective assessment instead of vilifying the leaders on the basis of rumor elements. The relationship of trust will be more
transparent and solid between citizens and their local representatives. Dissemination of accountability practices at local and
regional level wills finally contribute to the promotion of the culture of participatory assessment of local public policies, the act
of evaluation is by definition dependent on the existence of objective criteria of accountability and adversarial views.
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This explains why, in Morocco, accountability has been built in recent years, as a fundamental requirement of the system of
public governance, accountability and equivalent expressions have acquired , as both concepts and practical observable ,
increasing visibility in political discourse , the texts of law and the functioning of institutions. Much better, in 2011 this requirement received the care of the constituent which made it a primary principle of constitutional device. The principle appears in
four decisive fundamental charter of the Moroccan Kingdom: first as a cornerstone of Moroccan constitutional regime (Article
1); then as a pillar of advanced regionalization (Article 146) and the governance of public services (Article 154); finally, as a
strategic task assigned to the Court of Account and the regional account courts (Art. 147).
The articulation between accountability and territorial governance is now irreversibly enshrined in the constitutional text, it should
be noted that previously invested by the Advisory Committee on Regionalization created in January 2010. As recommended
by the Commission, the advanced regionalization project should be based on, inter alia in healthy practices of accountability.
Book I of the Report argues for this purpose on an extensive sense of accountability, which should include, in addition to the
legal obligation to report annually to the regional courts of audit, the publication by elected councils of detailed assessments
management and that of their governments and implementing agencies, under periodic reports to the State and their partners
and through adequate and simple information materials for the public. This exercise will permits to regional councils to present
the results and impacts of the management and impacts of various programs and policies implemented, to explain, if appropriate, of deviations fund and propose corrective measures required.
This can be evident, the way recommended by the Advisory Committee on Regionalization implicitly endorsed the model
of «managing for results»: accountability is an effective springboard for reflective evaluation of the results, which will permits
to capitalize the experience and identify gaps to be filled. Debates and structured exchanges which result to accountability
tools and continuous evaluation thus prove an instrument of territorial governance. Better, the Councils of the Regions will
be invited, according to the recommendations of the Commission, to use internal and external audits and to recourse upon
the specialized agencies of the state in this area or independent organizations. The system of accountability, as reflected in
the advanced regionalization project finally recommends that elected councils to ensure the establishment of mechanisms for
prevention and risk management, as good practices of some departments and agencies in the field.
The proceedings of the workshop will be declined in three sequences that deal, each of a different fundamental dimension of
the relationship between advanced regionalization and accountability:
• The first axis address the accountability considered in its relation to the general problem of territorial governance and
advanced regionalization rules , processes and mechanisms or anticipated by the legislature , bodies and competent
environmental authorities ;
• The second axis will focus on the financial aspect of accountability and tools to mobilize in order to establish an advanced
regionalization, discernible to the requirements of transparency and protection of public funds;
• The third axis will be to explore ways to borrow in order to converge the requirements of accountability and citizen
participation mechanisms provided at the regional level.
Prof. Keyong Dong introduced the background of China’s new administrative reform, and the triangle model of China’s reform.
The new administrative reform covered a series of focused fields such as its mega-ministry reconstruction, performance
evaluation in public sector, and anti-corruption. The recent aim is to build a more professional, neutral and merit-based bureaucratic system. Conventional studies show that the mode of China’s state, market and society is unbalanced and asymmetric
which its state sector are more powerful than other two sectors, however, things are changing gradually and the rising of
market and society is more remarkable during this new administrative reform.
Prof. Guanghui Zhou’s presentation focused on open policy making and policy making democracy. He shared with the audience
a case of how Hangzhou municipal government carry out the open policy making procedures. It showed a transformation from
the GDP-oriented development to the development that includes not only people’s welfare, but also how to reform. People’s
opinion and demands are taken into consideration during the decision-making.
Prof. Tao Sun introduced a case study for the new type of urbanization of Huaming Town in Tianjin, China’s third largest city The story
of Huaming’s transformation from a “suburban village town” into an integrated part of Tianjin metropolis illuminates the logic behind
China’s concurrent practices for urban development issues with a holistic approach. The concept of Glocalization was discussed.
In the discussion session, speakers, discussants and audience share the following opinions:
• It is vital to balance the relation between open democracy policy making and expectation management, centralization
and decentralization, and de-regulation and re-regulation;
• In administrative reform and modern governance system building, culture does matter a lot;
• It is necessary for China to produce its own “textbook” on public administration based on China’s situation and to share
it with the world.
In the past few decades, China has made great strides in economic and social development, and quickly emerged as a global
power. Within one generation’s time, it has elevated millions out of poverty in a scale hardly witnessed in history. Many attribute
this transformational change to China’s economic reform. Rarely discussed are what China has done in its administrative
reform that has made all these changes possible. This panel served as a platform to make China’s administrative reform
achievements and experiences known to the world.
Panel MENAPAR on Public Management Education and
Research in the MENA
By Dr. Raed Ben Shams, Director General, BIPA, and President, MENAPAR
Panel on Governance Reform and China’s Growth
By Prof. Jiang Wu, Chinese Academy of Personnel Science (P.R. China)
This Panel on Reform and China’s Growth gathers a group of China’s prominent scholars and frontline practitioners:
• to provide an overview of China’s administrative reform and its specific role in allowing for or inducing change;
• to invite comments about the future role of administrative reform in China’s further development;
• to discuss China’s administrative reform and its prospects in turning itself into a modern system of governance.
The panel was moderated by Prof. Zhiyong Lan from School of Public Administration, Renmin University of China and animated
by following speakers from China,
• Prof. Keyong Dong, Dean of School of Public Administration, Renmin University of China
• Prof. Guanghui Zhou from School of Administration, Jilin University, China
• Prof. Tao Sun from Zhou Enlai School of Government, Nankai University, China
Vice-president of Nankai University, Prof. Guanglei Zhu and IIAS President Prof. Geert Bouckaert made comments and suggestions on the presentations.
The speakers were invited to share the Chinese practices and experiences in terms of reform and governance with specific
cases. Speakers provided several ideas and insights.
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With calls for a higher accountability and responsiveness of public administration, traditional public management education
and training are being questioned as reinforcing existing bureaucratic structures. How can this state of affairs be changed
to create programs and curricula that develop more responsive public servants and rethink public service delivery towards
more efficiency and effectiveness? Can research be the panacea to reengineer public service and bring it to par with citizen
expectations?
The following themes were addressed:
- Competency requirements for Public management education and training in the Gulf region
- The “Arab Spring” of Public management education
- Regionalizing public management education
- Can public management education undo bureaucracy?
- What is Arab public management education?
- Public management education and research
- International collaborations for public management education and training
- Recruitment practices in the public sector: “the ENA hegemony” and its fallouts
- Successful benchmark experiences of PM education in the world
Speakers were invited to briefly depict the situation in their respective country/region to provide the audience with a large
spectrum of views on public administration teaching and training and provide food for thought for a fruitful debate with the
audience.
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Extra session on Contributions from the Region
By Dr. Steve Troupin, Strategic Project Officer, IIAS (Belgium) and Dr.
Fabienne Maron, Scientific Administrator, IIAS (Belgium)
On Sunday, 15 June 2014, an extraordinary session of the IIAS Congress, devoted to the contributions from the region, has
been held. This session is a joint initiative by the President and Secretariat of IIAS to improve the representation of authors from
the North-African region at the 2014 IIAS Congress in Ifrane, Morocco. Seven authors of abstracts have been contacted to
constitute this extraordinary panel.
The contributions have principally focused on the current policy aimed at making Moroccan enterprises more accountable from
a societal point of view, on accountability in more general terms, and on public enterprises. IIAS scientific team (Dr. Fabienne
Maron & Dr. Steve Troupin) have chaired the discussions, oriented towards the improvement of the academic quality of the
contributions, in the framework of the PhD process in which most authors are involved.
This extraordinary session led to two results. On the one hand, participants to the sessions are pursuing their research process
in the framework of the Euro-Mediterranean Dialogue (MED), where they present further research results and build important
networks for their professional career. On the other hand, IIAS scientific team now contributes to the selection of abstract by
the rapporteur team, analysing the contributions from the perspective of regional representation.
Ultimately, this initiative aims at better exploiting the IIAS congress for the professionalization of the academic research in the
host region.
La session extraordinaire du Congrès de l’IISA consacré aux contributions de la région qui s’est tenue le dimanche 15 juin
2014 est une initiative conjointe du Président et du Secrétariat de l’IISA visant à améliorer la représentation des auteurs de la
région Nord-Africaine au Congrès 2014 de l’IISA à Ifrane au Maroc. Sept auteurs de communications potentielles ont ainsi été
contactés pour constituer un panel extraordinaire.
Abstracts of papers
Les contributions ont porté sur la démarche de responsabilité sociale des entreprises au Maroc, la reddition des comptes, et
les entreprises publiques. L’équipe scientifique de l’IISA (Dr. Fabienne Maron et Dr. Steve Troupin) ont animé des discussions,
orientées vers l’amélioration de la qualité scientifique des contributions dans le cadre du parcours doctoral qui occupe la
plupart des participants.
presented during the congress
Cette session extraordinaire a eu deux débouchés. D’une part, des participants à la session poursuivent leur processus de
recherche dans le cadre du Dialogue Euro-Méditerranéen (MED), présentant des résultats ultérieurs de leur recherche et
nouant des contacts précieux pour leur future carrière. D’autre part, l’équipe scientifique de l’IISA est désormais impliquée
dans la sélection des contributions, qu’elle analyse complémentairement à l’équipe de rapporteurs sous l’angle de la représentativité régionale.
présentés pendant le congrès
Résumés des papiers
L’objectif final de cette initiative est que le Congrès de l’IISA puisse mieux servir de levier pour la professionnalisation de la
recherche académique dans la région qui l’accueille.
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41
Subtheme 1 / Sous-thème 1
Proliferation of Responsible Actors in Public
Administration: competition, sharing of roles
and responsibilities and cooperation among
actors / La multiplication des acteurs responsables
dans l’administration publique: la concurrence,
le partage des rôles et des responsabilités et la
coopération entre les acteurs
LA COLLABORATION :
D’UN EFFET DE MODE À UN MÉCANISME D’ACTION PUBLIQUE RÉINVENTÉ
Naïma Bentayeb et Martin Goyette - Chaire de recherche du Canada sur l’évaluation des actions publiques à l’égard
des jeunes et des populations vulnérables (CRÉVAJ), École nationale d’administration publique (ENAP), Montréal,
Québec, Canada
La collaboration est devenue le mécanisme favori de l’action publique. Ce recours n’est malheureusement pas toujours justifié
par une analyse des besoins ou de la problématique à la base de l’intervention gouvernementale. Cet état de fait amène
une « hyper-concertation ». Ceci dit, les cas de collaboration se multiplient nécessitant ainsi une coordination afin d’arriver à
une cohérence entre, d’une part, les activités organisationnelles et les activités partenariales et d’autre part, entre le formel
et l’informel. L’objectif est d’optimiser le recours à la collaboration comme instrument de l’action publique et rendre cette
collaboration plus efficace et efficiente en mettant en place des modes de reddition de compte innovateurs. À partir de trois
études de cas dans le domaine de la protection de la jeunesse, nous allons montrer les lacunes au niveau de la collaboration
telle qu’elle est mise en oeuvre et proposer des pistes de solutions afin d’améliorer l’efficacité et l’efficience de la collaboration
lorsqu’elle s’avère le mécanisme de plus approprié pour répondre à une problématique sociale.
Mots clés : collaboration, cohérence, coordination, évaluation, protection de la jeunesse, action publique, action sociale
LA REDYNAMISATION DE LA MISSION PREMIÈRE DE L’ETAT PAR LA RÉPARTITION
DES RÔLES ET LES MÉCANISMES DE COORDINATION DÉVELOPPÉS :
EXPÉRIENCE DU CAMEROUN
NDZIE NKOE Marie Virginie, MINFOPRA, CAMEROUN.
Depuis l’accession du Cameroun à l’indépendance en 1960, le mode de gestion des affaires publiques mis en place laissait
entrevoir un souci permanent de performance afin de satisfaire les attentes et les besoins sans cesse croissants de la jeune
nation. C’est ainsi que l’appareil étatique installé dans une logique de séparation de pouvoirs certes, prônait la centralisation
du processus de prise de décisions. Cette option ambitieuse n’a prospéré que quelques temps. Car, l’Etat du Cameroun était
essentiellement un Etat-providence. Il fallait aider les citoyens à sortir des tares de l’assistance de la métropole. Au cours
des années 80, le Cameroun a été vite frappé par le cours des choses avec la crise économique mondiale. Les mutations
de l’environnement tant national que mondial, ont ainsi permis de requestionner le mode de gestion de la vie publique. Des
études menées à cette suite, ont fait état des dysfonctionnements de l’appareil administratif. On peut relever à titre d’exemple
: la centralisation du pouvoir dans les administrations, les lenteurs administratives, l’inertie des agents publics, la disparité des
ressources, le culte de l’impunité, etc. Emprunts de ces défaillances, les pouvoirs publics, s’inscrivant dans la mouvance de
« village planétaire » ont intégré les bonnes pratiques administratives ayant permis à certains Etats, de pouvoir satisfaire les
attentes des populations et de rester toujours cohérents par rapport aux principes qui encadrent le service public, à l’instar du
Canada et des organismes internationaux tels la Banque mondiale, l’ONU1, l’OCDE2.
En réalité, au début des années 90, le Gouvernement Canadien systématise la gestion axée sur les résultats initiée par Peter
Drucker3. Cette méthode a fait l’objet d’une importante réforme du secteur public visant à développer un modèle de gestion
1 ONU : Organisation des Nations Unies.
2 OCDE : Organisation pour la Coopération et le Développement Economique.
3 Peter Drucker dont la paternité du concept lui est communément attribuée. Ce gourou du management qu’on ne présente plus, publie en 1964 un ouvrage
intitulé « Managing for results ».
42
de projet plus participatif et responsabilisant. Cette stratégie porteuse de bons résultats, a amené les décideurs politiques du
Cameroun à redéfinir l’assiette de responsabilisation des acteurs participant à la modernisation de l’administration publique ;
ce qui a d’ailleurs induit la mise en place des mécanismes de coordination encadrés juridiquement pour lier les différents
partenaires au développement à l’action gouvernementale.
Cette nouvelle vision de la gestion des affaires publiques pour pallier les insuffisances du passé dans un contexte de globalisation, de décentralisation et de privatisation, nous a amené à penser qu’il est important de partager avec vous l’expérience
du Cameroun.
Prenant acte du sens de la responsabilité et de la reddition des comptes dans un pays où la quête permanente de la performance est de mise, notre communication qui met l’accent sur le recentrage de la mission première de l’Etat « le service
public », est axée sur les quatre (04) points suivants : définitions de quelques notions clefs ; répartition des rôles ; mécanismes
de coordination développés ; les progrès enregistrés.
Ainsi, tout au long de notre présentation, nous allons montrer d’une part, comment les responsabilités sont partagées, en
fonction des secteurs d’activités, en tenant compte des sensibilités, dans le respect des objectifs, principes et valeurs qui
gouvernent l’administration publique et d’autre part ; dire comment les instances faîtières du Cameroun ont développé des
stratégies pour mieux asseoir le contrôle, le suivi , l’évaluation et l’accompagnement de ceux qui ont pour mission d’aider
les citoyens à améliorer leur cadre de vie civique. Aussi, l’évocation des progrès enregistrés permettra de voir à quel niveau
le Cameroun se trouve par rapport à sa projection de se voir « un pays émergent, démocratique et uni dans sa diversité à
l’horizon 2035 » et partant ; les enseignements tirés du nouveau mode de gestion serviront à coup sûr, de cas d’école pour
les autres nations.
COMMUNITY SECURITY CONCERNS FROM THE PERSPECTIVE OF NETWORK
GOVERNANCE
FAN Wei - Zhou Enlai School of Government, Nankai University, China
With the advancement of market-oriented economy and social transition in China, the appearance of manifold possession
system and the disorganization of the unit institution as a traditional form of social control logically make organizational reconstruction and institutional innovation indispensable. Public security concerns manifest the imminence to restructure the system
of social regulation.
Public security is a problem of social adjustment and conformity. From the perspective of policy network governance, the
potential path selection on the integrated and comprehensive governance of public security includes: legal governance, socialization, industrialization, community oriented. On the basis of the above guidelines, we put forward the core concept named
community security with network governance and demonstrate its rationality. In conformity to the theory of route dependence,
we bring forward the logic of public security network generation, which adjusts resources in stock and absorbs increment
of resources outside the given system. Community security network that is shaped by main bodies with security function is
inter-organizational. Based on the theory of new Institutionalism, we probe into the action context and functional transition of
these bodies involved in the security network. Community security network is classified by the criterion of governance pattern
and governance tache.
Based on the network governance frame, we probe into the governance practice under the specific community circumstance.
The market-oriented operation is examined via field interview on the privatization governance by contract in the prefecture level
city of Wenzhou. Main governance ways and performance on community police service are penetrated by sample surveys into
X street precinct in Hebei borough in Tianjin. Comprehensive mediation network with Chinese characteristic is examined by the
research into the Jinjiang borough in Chengdo. Mechanisms to improve the network governance performance are put forward
from three aspects including institutionalized interaction between community and state, cooperation among organizations and
community institution innovation.
Key words: Community security, Network governance, Public security, Privatization, Community Policing
HOW TO ACHIEVE CO-PRODUCTION IN DELIVERY OF PENSION SERVICE?
A CASE STUDY OF “ FEIXIANG MODEL” IN CHINA
Fang LU, CHINA UNIVERSITY OF POLITICAL SCIENCE AND LAW - XIAOJUAN PAN, China University of Political
Science and Law - FANG LU, China University of Political Science and Law
This article uses a case of “ Feixiang Model” to explore the configuration of co-production in the delivery of pension service in
rural areas in China. As we know, China has entered into an “age of aging”. In recent years, mutual-support pension service
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has surfaced in some rural areas across China. Some old people’s homes without service personnel have been set up. The
younger elderly and the older elderly help each other in these homes. Such model can deliver pension service at lower costs to
the old people in rural areas. However, currently the model encounters a series of difficulties. The reason is that all participants,
including governments, communities, NGO’s, old people and their children, haven’t got a clear idea of their responsibilities. In
order to resolve these problems, such model should make a shift from mutual-support to “co-production” of pension service,
and every participant should fulfill his responsibility. The article aims to answer the following questions: (1) what is the duties
of governments, communities, NGO’s, old people and their children in the delivery of pension service? (2) What factors can
contribute to a higher degree of cooperation among them? (3) How governments act to maintain mutual support among
citizens, and bolster cooperation on resources among each participant as well?
And Economic zone with single economic task can be replaced by companies at all. It’s easy to continue after being companies to economic zone. Commercial company is qualified enough for the developing mission of economic zone. The problem
of developing company system is “integration of government administration with enterprise”. On the one hand, the company
exercises some functions of government in terms of economic development. On the other hand, the company usually monopolizes the power of land development and industrial layout. It would not only influence the development of other companies,
but also do harm to improve efficiency for these state-owned companies. Economic zone as a task-oriented organization,
sooner or later, is faced with the problem of system transformation. And as a new form to develop domestic economy, its
reform is continuing, as well as new system would be appeared.
GOVERNMENT OR ENTERPRISE: EVOLUTION OF ECONOMIC ZONE IN CHINA
Kai Masser, German Research Institute for Public Administration Speyer, Linda Mory
SAP AG, Ulrike Kleifeld, Industry Business Solutions Public Sector, SAP AG, Germany
Long YANG, Nankai University - Meng Wang, Zhou Enlai School of Government Nankai University
1. Main problems: Since reform and opening up in 1978, many economic districts in China have developed from single-functional economic districts to multiple-functional urban areas. How to change administrational system has already become a
mission of governments.
2. Methodology On the basis of theory of organization and theory of intergovernmental relations, the paper grounded in three
Chinese economic zone cases: Tianjin Baihai New Area, Shanghai Pudong New Area, Guangzho Nanshai New Area;
using the interview of zone’s officers, relative documents, and data. To research the paths of system changing of economic
districts, the following work must be done: analyzing functions of the economic functions, analyzing the organizational
form and power of its administrational system, pointing out existing problems, evaluating present changing system and
concluding its future direction.
3. Main issues: There are three main administrational patterns of economic zone: governmental agency, consolidated with
administrative district and development company. Most Economic Zones adopt governmental agency model. Management
committee is the principal organizing pattern of the governmental agency. Compared with the total administration by local
government, management committee as “uncompleted government” can simplify administrational system, and shape
advantages of its administration. But the authority of Economic Zone is limited, only including the powers of economic
management. The economic zone increases policy tools of central government. Various economic zones enrich central
government’ policy choice and they are new method to solve problems in development. All these problems bring serious
pressure and accusation to central authority. In order to share responsibility of decision, central government transferred
these problems to local governments by founding themed economic zones. In the management committee, the power of
central and local government is decomposed into the complex institutions. The important characteristics of management
committee are cross-administrative district and cross-administrative level. The behavior of local governments also changed
through foundation of economic zone. The local government hasn’t focused on competing in the same industrial each other,
but concerned to explore its own advantages when it applies to be national economic zones, presenting local features,
demonstrating in whole country.
Nowadays, the zone has developed from single-functional economic zone to multiple-functional urban area. Since the administrative institution is still an agency of government, more and more problems are faced by these zones. Firstly, there are not
any specific national laws and regulations which could give authoritative legal position to management committee, but only
some local rules to stipulate the establishment, institutional structure and function of management committee. Because of
this, the management committee lacks certain powers, such as shortage of legal authority in practice. Secondly, the power
and responsibility is confused between management committee and local government. More and more economic zones have
become administrative region actually; even through they are not legal grounds.
As a result, the administrative region might be divided and weakened. Thirdly, since many homogeneous policies, the disorder
competition has intensified among different economic zones. The same function also leads to repeated construction in the
infrastructure such as factory building. So it is difficult to form competitive industrial clusters and use resources effectively.
Finally, the future of most economic zone is uncertain. Possible choices of economic zone reform in future are two. First is
union of economic zone and administrative region. It is including two ways. One of them is a total economic zone or union of a
economic zone becoming administrative region. Another way is “one group, two brands” configuration in economic functional
and administrative region. The most important advantage of the way is avoiding conflict between administrative region and
economic zone, and assuring efficient administration. The combination needs three conditions. But there are still some new
problems. One is the advantage of totalitarian of management committee disappears after uniting. After becoming back to
administrative structure, previous system needs to be in line with normal system. Another problem is the coordination of internal
municipal relations. The combined new districts have different levels of functional zones, including national, provincial and so
on. As lacking the same authority, the leaders of apartments don’t have enough rank, the government of new district cannot
control all economic zones inner effectively. Second choice is the dissolution of economic zone or changing it to a company.
Some economic zone has the developing function only, so it may be removed when the task of development finished.
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OPEN GOVERNMENT 2014 – “PROLIFERATION STORIES FROM GERMANY”
Given the importance of a transparent government that allows its citizens to actively participate in government decisions as
well foster a close collaboration in terms of co-production, Open Government (Data) is becoming an integral part of modern
government. Currently there are several approaches at all levels of government, administration and the private sector in
Germany. At the core of open government is the release of data and information publicly (on the Internet) through government
and administration.
It is estimated that in the EU, through Open Government initiatives there is a potential of € 40 trillion by new and private products and services as well as that the efficiency of collaboration of various public institutions can be fostered and encouraged.
In addition, the transparency of governmental and administrative actions should enable greater participation of citizens and
new and innovative solutions to social problems should arise. In this regard, there are three principles that characterize the
concept of Open Government:
• Transparency: “Documentation requirements” and accountability of government and administration towards the taxpayer
and the voter – citizens should know what government and administration is doing
• Participation: Improving the effectiveness and quality of administrative action by making use of the knowledge and skills
of its citizens
• Co-production: Cooperation between (different) public, but also between public and private organizations and institutions
German examples – at the municipal as well as at the state level – point out that Open Government creates a need for a
noticeable change in the understanding of the roles of official (elected) bodies, citizens and private enterprise. Firstly, transparency is not only the “dumping” of vast amounts of data but needs a proper processing of information and the deployment
of tools (software) for a significant use of it. Secondly, participation needs a sharing of roles of councils and parliaments and
the citizens. Citizens demand a visible influence on decision-making in their communities. Otherwise participation is pointless
to them. Thirdly cooperation and collaboration between the public and the private sphere needs creative and innovative
cooperation tools. Only private sector companies such as SAP seem to be likely to develop the tools to be wanted to come to
successful cooperation and trigger innovation via PPP.
In our paper we will present and discuss some of the most interesting latest Open Government approaches in Germany: from
the municipal level and the state level. We will deal for example with new approaches to city planning, municipal decision
making and the draft of bills. Our “Proliferation Stories” will cover technical aspects such as Web2.0 as well as political and
administrative matters such as changes in public planning and decision-making processes. Moreover, we discuss how software
solutions and private companies create innovative solutions to the new challenges and help governments to transform.
CAN PUBLIC-PRIVATE DIALOGUE BE QUANTIFIED AND MEASURED? A WESTERN
BALKANS’ CASE
Mirjana STANKOVIC, Development Consulting Group, Serbia
Capacity of local governments to establish and develop public-private dialogue (PPD) mechanisms is a prerequisite for creating
business-enabling policies and implementing measures for increased competitiveness. Ability to initiate, establish and sustain a
dialogue with local private sector is a key indicator of municipal economic and good governance, in line with the new, modern
role of local governments based on the concept of new, public management. From the local government’s perspective,
it should be their initiative to recognize, develop, introduce and implement a sound PPD policy, create an institutional and
regulatory framework to make it sustainable. Most importantly, it is up their skills and knowledge to ensure adequate private
sector participation. From the private sector’s perspective, successful private-public dialogue includes interested, motivated
and committed local business sector to get engaged in their community’s development and to ensure that their voice is heard
within the higher-level policy-making circles, with an aim to create a more favourable climate for business sector growth,
increased competitiveness of local SMEs, greater prospects for SMEs’ retention and expansion, improved markets, ensured
chains of suppliers and more competitive business and communal infrastructure.
45
In order to build the create a favorable environment and build functional private-public dialogue mechanisms, the municipality
needs to consider and implement the following cyclical steps:
1) assessment/diagnosis of the current status and capacity of the public and private sectors to engage in dialogue and the
areas in which dialogue can be most fruitful;
2) design of a dialogue process that gives the best chance for productive interactions between public and private sectors to
emerge;
3) implementation of PPD with an awareness of risk factors that can arise and the ability to identify and address issues as they
come;
4) establishment of effective monitoring and evaluation mechanisms, which would take it back to the first step, aimed at
designing and implementing the necessary improvements.
In 2013, the author of this paper developed a comprehensive Private-Public Dialogue Assessment Tool for measuring PPD
status at the local level and the capacity of both the public sector and the private sector to establish and institutionalized such
dialogue. The Tool is specifically focused on measuring their capacity to propose joint innovative initiatives and to seek ways
for their implementation via a series of locally implemented effective and efficient measures for increasing SME competitiveness
and better investment attraction; as well as for successfully articulating proposals to be addressed at the national level. Finally,
it is aimed at identifying examples of successfully implemented private-public dialogue initiatives. The Private-Public Dialogue
Assessment Tool was applied in 34 cities and municipalites in South and South-West Serbia and 6 municipalities in Bosnia
and Herzegovina (including Republika Srpska and the Bosnian Federation), funded by the United Nations Office for Project
Services (UNOPS) and the German Agency for Development and Cooperation (GIZ). In July-September 2013, focus groups
were held with the public, private and civil sector representatives in each of the surveyed local governments, and 3-5 small
and medium enterprises were visited in each of them. In addition, the assessment included interviews with the mayors of these
local governments and the local administration executives in charge of local economic development.
The assessment of the local government’s capacity for public-private dialogue included evaluation of an institutional framework
for PPD (who is in charge of planning, organizing and monitoring of the private-public dialigue, whether there is a formally
established body for PPD and how regularly it meets); local regulatory framework in support of PPD (whether there is a formally
PPD policy, or procedure/rulebook that clearly explains a framework for PPD and the local governments commitment to involve
the private sector in decision making processes); capacity of human resources to conduct PPD (their ability to “step into the
private’s sectors shoes, capacity to meet the private sector needs and provide them with professional services); existing
strategic framework for PPD (whether relationship-building with the private sector is seen as a priority, whether the measures
for PPD improvement have been clearly defined in the implementation plan and how the local government plans to address it);
services and incentives offered to the private sector (what range of services the municipality offers to local SMEs and potential
investors; how efficient and effective they are; whether the municipality has developed incentive packages for the private
sector; how efficient those services are; whether a local regulatory impact assessment to simplify of procedures and reduce
the time necessary to obtain services, permits and licenses; whether the local government regularly performs private sector
attitude surveys and needs assessments; whether the results have been properly analysed and used as feedback to improve
services for the private sector); database status (whether the local government has an updated SME and potential investors’
database; whether there is a database of investment location, with data on infrastructure related to it); e-Government status
and quality of communication and cooperation of the local government with the private sector (what kind of e-services are
available; whether the municipal website offers adequate information and services for the private sector and how interactive it
is). The PPD capacity assessment of the public sector included: identification of active associations of SMEs/entrepreneurs;
existing private sector networking mechanisms; the private sector’s perception of the quality of their relationship and cooperation with the public sector (both at the local and national level); their interest in PPD; to what extent they have so far participated
in PPD; whether any initiatives of the private sector have been implemented; satisfaction with the local government services
and incentives offered to the private sector; assessment of sector-specific issues and challenges.
The paper provides an overview of the tool and the conducted assessment process, with key findings for each assessed area,
including a critical overview of the current status and capacities of the surveyed sample for establishing a sustainable publicprivate dialogue. The lessons learned, presented in the paper include a set of generalizations, which can be useful to both
prospective researchers, and to local governments, which can use it as a simple self-assessment and PPD monitoring tool.
HOW MUCH GOVERNANCE IS RESPONSIBLE IN LITHUANIA: GOVERNMENT AND
NON-PROFIT COOPERATION, COMPETITION OR IGNORANCE?
is widely noticed that the keywords for a new governance are empowerment of citizens, participatory governance, cooperation
with nonprofits, etc. (Freise, Pyykkonen, Vaidelyte 2010). Kelly (1998) argues, that the traditional dichotomy between politics
and administration that has dominated in the public administration literature for many decades should be replaced by a
different theory relating to the relationship between elected officials and citizens and non-profit sector.
The study is based on the two-fold approach:
1) general approach to the government and nonprofit sector cooperation as the key factor of responsible governance. The
paper employs a broader concept of nonprofit sector and refers to citizen values and institutionalized citizen initiatives;
2) particular approach examining how above mentioned general approach works in Lithuania.
In last decades the transfer from traditional public administration to a new public management and eventually new public
governance models has introduced new roles of citizens in public governance. However, the question that remains without
explicit answer yet, is who should be responsible for the the cooperation: government or citizens and nonprofits? Some
theorists (Denhardt/Denhardt 2003, Nalbandian 1999, Pateman 1970) argue that government could play an active role in
encouraging citizen involvement and sharing responsibility in public decision making. As Denhardt (2003) points out “there
also seem an important role for government in encouraging community building and civil society”, however, authors give no
concrete model of government and citizens. Putnam (2000) argues that democratic tradition is dependent on the existence
of civically engaged citizens, active in governmental units. A lack of citizen participation in modern governance reduces the
capacity of government to be representative and responsive. Meanwhile, Denhardt and Denhardt (2003) emphasize that
“citizens would do what they are supposed to do in a democracy – they would run government”.
Thus, there are no single opinion about citizens and government partnership models, however, Najam 4C model of government and
nonprofits relations is rather clear about sharing responsibility, ends and means of the cooperation and is discussed in the paper.
The second particular question eventually discussed in the paper is how does the western theory work in Lithuania? Together
with political and social changes democracy and civil society ideas are returning back to the Lithuanian society. However it is
not only about their “return”, but also about their “ introduction”, since to some extent civic concepts are new in social life and
social discourse and mentality of Lithuania, as well of other post-communist countries. It is widely debated, that „the surprise
of post-communist transition“, is that western economic, political and social theories and practices are not always valid in
post-communist context (Outhwaite/Ray 2005). According empirical data, it might be assumed that Lithuania even after
more than 20 years of transition period still feels the legacies of non-democratic period – the lack of civil initiative and specific
government approach towards civil society and nonprofits.
In 2008 Lithuania has passed a new Law on Local Governance that was reviewed also in 2013 and includes several renewed
chapters describing the role and opportunities for citizen participation. However, various empirical studies indicate that
nonprofits engagement is not high. It could be noticed that rather often government is identified as the main responsible
actor meanwhile government itself do not identify nonprofits as potential actors in public governance at all. Thus, facing the
above discussed reforms and changes in public governance the following relevant questions occur: What is government
approach towards the role of citizens and non-profits in public governance? Do citizens trust government in Lithuania and
does government give an importance for the citizen trust? Who is identified as the responsible actor in the cooperation and in
public governance?
Seeking to answer the questions mentioned above the empirical evidence is based on two-fold empirical data reflecting
different approach towards the same issue: a quantitative survey conducted in 2013 that reflect the tendencies of public
attitudes towards government and NGO relations in Lithuania and the quantitative research conducted in 2013 as a part of the
project “Coordinating for Cohesion in the Public Sector of the Future” (COCOPS). The survey was focused on the senior public
sector executives in ten European countries and targets top-level decision makers and civil servants in central government and
the fields of health and employment.
Empirical data interpretation attempts to provide an answer to the following question: What is government approach towards
the coordination of cooperation with different sectors in Lithuania4? How much responsible do they feel in front of citizens and
how much are they inclined to share responsibility with other actors? What are tendencies of the above mentioned issues
in Lithuania comparing to the international context? The comparative parallels between different national governments are
discussed in the paper as well5.
Egle Vaidelyte, Egle Butkeviciene, Vaidas Morkevicius
Kaunas University of Technology, Public policy and Administration Institute
Together with economic, social and political changes as well as with a shift from a normative public administration model
“rooted with the idea of rational choice” (Denhardt/Denhardt 2003) to a new public governance, national governments experience challenges of involving and empowering new actors as well as facing new aspects of responsibility and cooperation. It
46
4 Survey was carried out by Market Research Centre in June 2013 and funded by Civic Responsibility Foundation in Lithuania.
5 The project is funded through the European Commission 7th Framework Program and carried out by a team of researchers from eleven universities (for further
information see www.cocops.eu).
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References:
1. Denhardt, J.V. /Denhardt, R.B. (2003): The New Public Service. Serving, not Steering. London: M.E.Sharpe
2.Freise M., Pyykkonen M., Vaidelyte E. (2010) A Panacea for all Seasons? Civil Society and Governance in Europe.
Baden-Baden: Nomos.
3.Kelly, R. M., (1998) “An Inclusive Polity, Representative Bureaucracies, and the New Public Management,” Public
Administration Review, Vol. 58 no. 8 : 201-207.
4.Nalbandian, J. (1999): Facilitating Community, Enabling Democracy:New Roles of Local Government Managers. In:
Public Administration Review 59 (3): 187-98.
5. Outhwaite, W., Ray, L. (2005): Social Theory and Postcommunism. Blackwell Publishing.
6. Pateman, C. (1970): Participation and Democratic Theory. Cambridge. UK: Cambridge University Press.
7.Putnam, R. (2000): Bowling Alone. New York.
Najam, A. The Four-C’s of Third Sector–Government Relations: Cooperation, Confrontation, Complementarity, and
Co-optation. Nonprofit management & Leadership, 2000, Vol. 10, No 4, p. 375-396.
GOVERNMENT OR ENTERPRISE: FUTURE OF FUNCTIONAL ZONES IN CHINA
Long Yang and Meng Wang - Zhou En-lai School of Government in Nankai University, China
Since reform and opening up, many economic districts in China have developed from single-functional economic districts
to multiple-functional urban areas. In this duration, how to change administrational system has already become a mission of
governments. To research the paths of system changing of economic districts, the following work must be done: analyzing
functions of the economic functions, analyzing the organizational form and power of its administrational system, pointing out
existing problems, evaluating present changing system and concluding its future direction.
Key words: Economic Districts; Management Committee; administrative district; Intergovernmental Relations
VIRTUAL INTERACTION BETWEEN GOVERNMENT AND CITIZENS AS AN
OPPORTUNITY TO IMPROVE ACCOUNTABILITY
Egle Butkeviciene, Egle Vaidelyte, Giedrius Zvaliauskas - Kaunas University of Technology, Lithuania
The impact of information communication technologies (ICT) on politics and public administration became a popular academic
topic in recent years. The Internet has provided new ways to think about politics, relation between government and citizens,
and also accountability issues. The expectations to solve problem and find a new Agora for deliberation of political actions,
administrative issues, and formation of political attitudes are often laid on the growth of the Internet and emergence of new
virtual spaces of public discussions. ICT provide a wide range of possibilities to increase transparency of government actions.
Wiklund (2005), argues that at a theoretical level, the deliberative democratic ideal and its communicative reformulation of
the democratic vision represent an alternative to the dominant liberal tradition, meanwhile at a practical level, information
and communication technologies (ICTs) have changed the organizational preconditions of democratic governance in several
important ways.
E-discussions bring government “closer to the people” by meeting the expectations of service users regarding convenience,
accessibility, and timeliness (Chadwick, 2003 p. 445). However, Chadwick (2003) argues that such perspectives should go
beyond simple electronic service delivery, integration, and information provision, on contrary, it should seek to use ICTs to
incorporate citizens’ deliberation into the initial stages of policy development, and citizens should be more fully incorporated
into regular policy-making processes.
Dahl (Bailey, Braybrooke, 2003 p.117) argues, that „decisions are genuinely democratic only when they reflect considered
judgments, developed in deliberation—reasoning together with other citizens, considering different points of view, and calling
for information to reconcile the differences“. The Internet brings people closer to government and offers broader possibilities
for democracy and accountability manifestation. Being timeless and place-less the Internet and virtual discussions bring
people closer to each other all over the world.
According to Karakaya Polat (2005), “it is necessary to explore the promises and limitations of the Internet by deconstructing
the medium into its different facets through which political participation could be enhanced”. For this purpose Karakaya Polat
(2005) distinguishes three facets of the Internet:
Sub-theme 2 / Sous-thème 2
Rethinking Accountability in Times of Proliferation
of Public Actors: content and effective systems for
accountability / Repenser la responsabilité à l’heure
de la multiplication des acteurs publics : contenu et
systèmes efficaces de reddition des comptes
THE BALANCED SCORECARD: ACTION RESEARCH IN A MOROCCAN REGIONAL
HOSPITAL
• The Internet as an information source;
• The Internet as a communication medium; and
• The Internet as a virtual public sphere.
E-democracy is easier to describe than to implement. ICTs facilitate the communication of citizen opinion to government.
Deliberation is a resource that can be used to provide better policy and administration (Chadwick, 2003, p. 443). As it was
discussed above, the internet breaks a lot of obstacles and enables citizens to participate in public discussions not considering
their social status and characteristics. However, some authors (Loader, 1998) declare, that wide possibilities for democratic
participation do not ensure democracy itself. Other authors (Wiklund, 2005) argue that democracy is not seen as a process
of public discussion in which the members of a community discover substantive common interests. In contrast, democracy is
conceived as a process of social learning through rational argumentation. E-democracy is associated with efforts to broaden
political participation by enabling citizens to connect with one another and with their representatives via new information and
communication technologies (Thomas and Streib 2005, p. 261).
Zakaria Belrhiti - National School of Public Health, Morocco
Introduction: Performance assessment is highly embedded in World Health Organi-zation’s (WHO) strategies in order to improve
the quality of care. Similarly, the Moroccan Health Authority has developed many hospital performance monitoring processes.
However, these tradition-al tools did not resolve the gap between planning, strategy and monitoring its implementation. In
1992, Kaplan and Norton developed the Balanced Scorecard, a tool that emphasizes “key perfor-mance indicators”, which link
key internal processes and strategic capacities of the organization to its strategy. Although the balanced scorecard is widely
used in health service organizations, there has not been any research on the BSC performance model in a Moroccan hospital.
Method: We con-ducted a four month action research in order to adapt the BSC model to a regional public hospital in Kenitra.
Results: We present in this paper a panel of indicators that helps chief executives of hospi-tals to monitor the achievement of
strategic goals. In addition, we adapted the original model of the BSC in order to fit Moroccan public health service organizations. The main adaptation is to add qual-ity service, access to health care and in-patient death rates to the client perspective
of the BSC. Con-clusion: In summary, the BSC is a tool that can help hospital managers to assess the implementation of their
strategic plan. Further research is needed to assess enablers and barriers that hinder implementation of BSC.
Key words: Balanced Scorecard, performance, Kaplan, Norton, healthcare.
48
Deliberative politics is understood to involve collective searches for common interests, as well as negotiation and bargaining
between conflicting private interests (Wiklund, 2005). Therefore, one of the most relevant indicator of “good“ virtual discussion
is its‘ openness. Regarding the criteria of openness several important aspects could be crystallized:
• how easy one can find the website;
• how easy one can find a place for virtual discussion within the certain website;
• who can participate in the discussion.
As Karakaya Polat (2005) argues, “everyone has to be able to be member of the public sphere and join in deliberations so
that a diversity of viewpoints can be ensured. Only in this way can a fair and representative democratic practice be sustained”.
Despite the academic debates and interest in e-democracy issues by politicians, policy makers and other interested parties, it
could be noticed that citizen participation in public discussions on political issues is not high, especially in Central and Eastern
Europe. Thus, the key questions discussed in the article are focussed on the analysis of preconditions for virtual interaction
between government and citizens: what is the interest to participate in virtual discussions about politics, what is the level of
internet access and participation in virtual social networks, and, finally, what is the degree of political will to create opportunities
for e-participation and what is the government’s interest to use ICT for accountability to the citizens in Lithuania?
49
Empirical part encompasses data on preconditions for participation in virtual discussions, interest in civic and political issues,
and the use of new social media for social networking. The empirical study is based on the results of three representative public
opinion surveys, conducted in 2011, 2012 and 2013 under the research projects “Monitoring of social problems: implementation of International Social Survey Program” (ISSP) and “International Social Survey Programme: Monitoring of Lithuanian
social problems” (ISSP-LT). Paper also presents governmental perspective that is focused on analysis of opportunities for
citizen participation in virtual discussions on civic and political issues and interest to use ICT for accountability to the citizens.
This part is based on the results of in-depth interviews with representatives from Civil Service conducted in 2011 and 2012.
References:
1.Bailey, M., Braybrooke, D. (2003). Robert A. Dahl’s philosophy of democracy, exhibited in his essays. Annual Review of
Political Science 6 p.99–118
2.Chadwick, A. (2003). Bringing E-Democracy Back In: Why it Matters for Future Research on E-Governance. Social Science
Computer Review. 21;
3.Loader, B. (eds.) (1998). Cyberspace Divide: equality, agency and policy in the information society. London: Routledge.
4.Polat, R.K. (2005). The Internet and Political Participation: Exploring the Explanatory Links. European Journal of Communication, Vol.20; 435-461.
5.Thomas, J. C. & Streib, G. (2005). E-Democracy, E-Commerce and E-Research: Examining the Electronic Ties between
Citizens and Governments. Administration & Society, 37(3), 259-280.
6.Wiklund, H. (2005). A Habermasian analysis of the deliberative democratic potential of ICT-enabled services in Swedish
municipalities. New Media Society, Vol7(1), p.701
LA DIMENSION ORGANISATIONNELLE COMME UN ÉLÉMENT NÉGLIGÉ DU
PROCESSUS DE TRANSPARENCE ET REDDITION DE COMPTES DANS LES
MUNICIPALITÉS DE L’ÉTAT DE MÉXICO.
Cecilia CADENA INOSTROZA, El Colegio Mexiquense, A.C., Susana MACHUCA SANCHEZ
El Colegio Mexiquense, A.C., María Esther MORALES FAJARDO, Universidad Nacional Autónoma de México
Un des problèmes fondamentaux du Mexique est la corruption qui a freiné le développement de nouvelles propositions et
mesures pour la résolution d’autres problèmes tels que la pauvreté, l’insécurité et le manque de respect des droits civils.
Une des mesures prises pour affronter le problème de la corruption a répondu aux demandes et pressions des organismes
multilatéraux tels que la Banque Mondiale ou l’OCDE, qui préconisaient le besoin d’établir des systèmes de reddition de
comptes. Les mécanismes furent établis au Mexique initialement au niveau fédéral et dans un second temps au niveau des
gouvernements locaux.
Cependant, le modèle de reddition de comptes établi au Mexique a répondu aux besoins et aux propositions des organismes
internationaux mais n’a pas pris en considération les particularités de la culture ni des modèles d’organisation locaux.
Le but de cette conférence est de mettre en évidence les difficultés rencontrées dans la mise en œuvre de processus de
transparence dans une région du centre du Mexique : l’état de México. L’intérêt est de démontrer que la dimension organisationnelle est celle qui permet de comprendre au mieux le manque d’efficacité dans la pratique de la transparence et la reddition
de comptes. Nous démontrerons, également, que les capacités institutionnelles, comprises dans la dimension normative, ne
suffisent pas à expliquer l’ensemble des problèmes liés à la pratique de la transparence.
La méthodologie utilisée dans cette étude s’est appuyée sur l’analyse de documents officiels, des demandes d’information
(telles qu’elles sont accessibles au public en général) et l’interview de fonctionnaires publics de 65 municipalités (sur un total
de 125 dans la région).
Les informations recueillies, aujourd’hui, révèlent le fait qu’il est nécessaire de considérer un modèle particulier à partir des
bases des organisations municipales, principalement la culture organisationnelle, afin d’établir des mécanismes efficaces de
reddition de comptes. Démontrer que ce ne sont pas les considérations légales, ni de capacité institutionnelle, qui déterminent la bonne exécution du processus de transparence, mais les relations hiérarchiques, la volonté politique, le manque de
connaissances des fonctionnaires publiques, et ce qu’on pourrait regrouper sous le concept de « culture organisationnelle »
qui expliquent le mieux l’échec dans la pratique de l’accès à l’information publique.
La principale conclusion de ce travail est que l’efficacité de la transparence et la reddition de comptes doit passer par les
conditions organisationnelles, le changement du comportement des fonctionnaires et considérer ainsi la culture politique et
sociale du contexte local afin d’améliorer le système ainsi que les mécanismes de reddition de comptes.
50
FIGHTING CORRUPTION: THE USE OF INFORMATION AND COMMUNICATION
TECHNOLOGIES IN THE BRAZILIAN PUBLIC ADMINISTRATION
Bianor Scelza Cavalcanti, Guilherme Marques – FGV Brazil
The emergence of Information and Communication Technologies has promoted substantial changes in the habits and behaviors
of individuals and in their relationships to diverse social aspects. The consolidation of social networks, applications of mass
communication and increasingly levels of unrestricted access and share information undoubtedly influences many aspects of
contemporary life, especially the way of how citizens relate to public and political matters. These tools can be appropriated
by citizens and contribute to improve mechanisms of economy, dynamism and efficiency, as well as for the establishment of
important preventive measures and instruments against corruption and misconduct, assuming crucial role in the promotion of
the three central axes that structure the Open Governance: transparency, accessibility and citizen participation. In this way, we
intend to demonstrate the Brazilian evolution of the use of these technologies in the fighting corruption, promoting mechanisms
such as accountability, transparency and social control, as well as its possibilities in the increasing of the citizen politicization,
contributing to the process of aggregation and articulation of interests.
Keywords: Accountability; Public Administration; Information and Communication Technologies.
RECONCILING EXPERTISE AND POLITICS: TOWARDS AN ADAPTED AND
BALANCED FORM OF POLITICAL SUPERVISION OF REGULATORY BODIES
Stéphanie De Somer - University of Antwerp, Faculty of Law, Research Group Government & Law, Belgium
This paper refutes popular arguments about the substitution of political supervision on utility regulators by the values and
mechanisms of procedural and legal accountability. It furthermore argues that the continued need for political accountability
on these bodies is not detrimental to the proper functioning of regulators, since forms of supervision by political principals that
respect and protect both the roles of experts and elected politicians can be conceived. It adopts a legal viewpoint for its argumentation, which is, however, complemented by insights from political science, as well as some empirical work (in progress).
GOOD GOVERNANCE AND WHISTLEBLOWING:
A CASE STUDY OF A HIGHER EDUCATION INSTITUTION
N Dorasamy - Faculty of Management Sciences, Durban University of Technology, South Africa
The article proposes to explore the attitudes of employees toward the Protected Disclosures Act (2000) in providing protection
to whistleblowers. It seeks to examine the extent to which employees are encouraged to blow the whistle at higher education
institutions, despite legislation which protects disclosures made in good faith. The assessment is conducted in the light of
empirical research conducted at a higher education institution, against literature gleaned on whistleblower legislation and its
impact on good governance. The research was limited to the Durban University of Technology,a higher education institution in
South Africa and may not produce the same findings at other similar higher education institutions. A conceptual framework
informed by legislation, policy and procedures and organizational culture was used to determine employee perceptions of
whistleblower protection within higher education institutions. In the light of this research, recommendations are made to
promote a culture of whistleblowing.
Key words: Whistleblowing, governance, South Africa, higher education, Protected Disclosures Act (2000).
PRISE DE DÉCISION ET REDDITION DES COMPTES AU NIVEAU NATIONAL :
L’ÉVALUATION D’IMPACT INTÉGRÉE SOUS LA LOUPE DU NOUVEAU SERVICE
PUBLIC
Jean-Sébastien Marchand, École nationale d’administration publique, Canada
Le nouveau management public (NMP) est une approche dominante de l’administration publique des années ‘1980 et
‘1990 qui a contribué à développer de nouvelles initiatives d’allègement règlementaire. Ultimement, ces initiatives ont mené
au développement, dans les années ‘2000, d’un nouvel outil d’aide à la prise de décision au niveau national : l’évaluation
d’impact intégrée (EII). Plus récemment, la recherche en administration publique a contribué au développement de « nouvelles
approches », plus normatives, telles que le nouveau service public (NSP). Comment s’inscrit l’EII dans ces grandes approches
de l’administration publique? L’EII pourrait-elle contribuer à mettre en pratique les principes « normatifs » du NSP? Cet article
vise à situer le concept et la pratique de l’EII, puis analyser l’adéquation entre les objectifs/effets de l’EII et la mise en place des
principes du NSP. L’analyse est effectuée à partir d’une revue de littérature et d’une recherche documentaire sur l’EII au niveau
national pour trois pays (France, Royaume-Uni et Suisse), et les pratiques de l’EII développées par la Commission Européenne
et l’OCDE. L’analyse soutient que si l’EII a pris forme dans le courant du NMP, ses objectifs et ses effets peuvent correspondre
aux principes du NSP. L’EII peut ainsi être perçu comme une application possible des principes normatifs du NSP en matière,
notamment, de prise de décision et de reddition des comptes.
51
DIMENSIONS OF MANAGERIAL AUTONOMY IN MUNICIPAL CORPORATIONS
Tobias Krause, University of Potsdam - Isabella Proeller, University of Potsdam, Germany
Over the last decades, the issue of corporate governance in state owned enterprises has gained particular importance and
the OECD published several guidelines and recom-mendations (OECD, 2005a, 2005b, 2010, 2013). In Germany, Switzerland
or Austria, services of general supply are traditionally provided by utilities and related municipally owned corporations. Many of
them have become private law entities where municipali-ties still retain majority public ownership. These types of enterprises
are often referred to under the topic of corporatization (Bilodeau, Laurin, and Vining, 2006; Nelson and Nikolakis, 2012), a
“structural reform process, which changes the operational conditions of public sector organizations in order to place them on
a commercial basis in a competi-tive environment.” (Teo, 2000: 558).
Promoters of corporatization believe that managerial autonomy under private law fos-ters organizational performance as
measured by cost efficiency and employee produc-tivity (Bilodeau, Laurin, and Vining, 2006). Criticisms suggest issues of
public accounta-bility when separating between political oversight and management (O’Toole and Jordan 1995; Talbot 2004).
A critical issue, then, is how political control is resolved while put-ting the enterprise on a more commercial focus (Box 1999).
In this paper, we will present top level managerial perceptions of autonomy and ac-countability in 247 German majority owned
municipal enterprises from different sec-tors. Based on the ideas of Lioukas et al. (1993) and Verhoest et al. (2010), we developed
an autonomy questionnaire that captures the issues of strategic and operational HRM autonomy, financial autonomy and strategic management autonomy in 180 public en-terprises. In addition, we present German survey data on stakeholder influence,
supervi-sory board characteristics and political control instruments. Enterprise data suggests separate dimensions of managerial
autonomy: HRM autonomy, General Management autonomy, Price autonomy and Strategic Growth autonomy. Based on these
dimensions, we can develop new research strategies on accountability and performance in corpora-tized enterprises.
LA REDDITION DES COMPTES DE L’ADMINISTRATION D’ETAT EN FRANCE D’UN
POINT DE VUE DE DROIT PUBLIC
François LAFARGE, Ecole nationale d’administration and University of Strasbourg, FRANCE
Le point de départ de cette proposition de communication réside dans la constatation de la multiplication des mécanismes
de type contrôle interne, audit, évaluation, reporting… au sein de l’administration d’Etat française depuis l’adoption de la loi
organique relative aux lois de finances de 2001 (LOLF). Liés à la recherche d’économies (au moins de fonctionnement), ils
sont en général pensés comme étant une étape permettant d’acquérir une vision plus fine et plus complète du fonctionnement
d’une action publique donnée et donc de son coût. En d’autres termes, au-delà des spécificités propres à chacun d’entre
eux, ces mécanismes semblent avoir comme point commun de relever au moins implicitement d’une logique de reddition
des comptes. Or la notion de reddition des comptes (ou de redevabilité) n’existe pas en droit français (ou alors à l’état très
embryonnaire). La communication procédera tout d’abord à une analyse croisée des mécanismes en question. Elle dégagera
successivement leurs champs (en soulignant la difficulté du passage du champ ‘structure administrative porteuse’ au champ
‘politique publique portée’), leurs objets (où on note l’évolution d’une reddition de comptes au sens financier à un « rendu »
de l’action publique en général) et les instances devant lesquelles leurs comptes doivent être rendus (du seul supérieur
hiérarchique et/ou de la seule tutelle à la multiplication, à l’externalisation et à la politisation des instances de reddition) et enfin
l’accentuation du caractère obligatoire de la reddition de plus en plus accompagnée de la possibilité de sanctions en cas de
non observation. Dans un second temps on tentera de conceptualiser cette notion en droit. On s’appuiera pour cela sur une
des dispositions du bloc de constitutionnalité français (« la Société a le droit de demander compte à tout Agent public de son
administration », article 15 DDHC). Mais surtout on s’attachera à montrer que ces mécanismes de reddition des comptes
jouent un rôle précis d’auxiliaires de légitimité de l’action publique dans un contexte de crise ou du moins de perte de vitesse
la source classique de légitimation de cette action, la légitimité politique de type Westminster.
Selon celle-ci, le gouvernement rend seul compte de l’action publique devant le Parlement. Il répond de l’administration et
de son action toutes entières. La légitimité politique est certes toujours indispensable, mais n’est plus adaptée aux formes de
l’action publique devenues de plus en plus complexes et parfois opaques (augmentation de la technicité, multiplication des
acteurs…). La reddition des comptes répond en partie à ces limites. En cas d’acceptation, la communication sera rédigée en
français mais présentée en anglais.
THE ROLE OF NON-GOVERMENTAL ORGANIZATIONS IN DEMOCRATIC
ACCOUNTABILITY OF LOCAL GOVERMENTS
52
This paper aims to examine the extent and content of NGO participation in the terms of democratic accountability at Selcuklu Municipality. Selcuklu is a relatively young local government unit with rather dynamic inhabitants demographically, socially and economically.
Around 60 % of the inhabitants are between the ages of 0-34. The population numbers increase around 35-40 thousands every year
(550.000 currently). Therefore this dynamism and increase in financial terms would only be maintained and managed by constant
support of stakeholders. This leads local politicians to consider that ‘Selcuklu should be governed together’. The slogan used by the
municipality indicates the intention of the mayor and the municipality: “Selcuklu is ascending together”.
The findings of Institutional Capacity Development Project represent the empirical part of this study. Coordinated by Prof. Kutlu
and conducted by a team of employees at various levels in Selcuklu, the project reviewed the entire structure, relations, culture,
legal provisions and resources with the intention of finding out and redesigning its contents. It has been implemented with active
participation of internal and external stakeholders since April 2010. Internal stakeholders contain elected council members and
employees in different positions, whereas external stakeholders are NGOs, media, professional associations, neighbourhood
chiefs, other local governments, central government departments, universities, political parties, and trade unions. These actors
took part in the study. Their views were attained either by interviews or surveys. Altogether around 879 surveys have been
conducted; of which with 203 stakeholders, conducted in 2012. The data analysis shows that NGOs are keen on developing
further relations with the municipality and therefore ask more and new ways of inclusion rather than integration.
This paper is a contribution to participation literature in a democratic sense at local government activities as well as civil society
studies. The findings of the paper would pose invaluable lessons for other local governments as well as academics.
Keywords: NGOs, local governments, stakeholder participation, democratic accountability
LE CONTROLE DE GESTION AU SERVICE DE LA RESPONSABILISATION DES
MANAGERS PUBLICS
GRAR Ahmed, Université Cadi Ayyad – Marrakech et SABIRI L houcine Université Hassan 1er – Settat, Maroc
Dans un contexte marqué par la rareté des ressources et l’accroissement des demandes des citoyens, les gouvernements
se trouvent obligés de repenser leurs modes de fonctionnement vers des modes de gestion efficaces et performants. Ainsi,
la dernière décennie du deuxième millénaire a connu le rapprochement des logiques de gestion et l’effacement des frontières
entre les secteurs public et privé. En effet, les premiers discours et discussions sur ce rapprochement ont vu le jour avec
l’américain William Ouchi qui a cherché à appliquer les leçons tirées du management des grandes entreprises à la gestion
économique d’un pays.
En outre, l’arrivée de nouvelles notions dans la sphère publique, telle que la gouvernance publique qui est un ensemble de
« bonnes pratiques », a mis en cause les modes de fonctionnement et de gestion des affaires publiques vers la nouvelle
gestion publique « New Public Management ». Cette dernière repose sur des principes comme la reddition des comptes; la
responsabilisation; le rendement; le pilotage des performances; la décentralisation; etc.
Ainsi, la corrélation entre responsabilité, reddition des comptes et contrôle de gestion trouve toute sa place dans la nouvelle
gestion publique, et sa force dans la nouvelle constitution marocaine (les articles : 1er, 147, 155, 158, 160, etc.) ». En effet, la
reddition de comptes est une relation fondée sur l’obligation de faire la preuve du rendement, de l’examiner et d’en assumer la
responsabilité, soit à la fois des résultats obtenus à la lumière des attentes convenues et des moyens employés. Le contrôle de
gestion, à travers son fameux triangle composé de trois sommets à savoir les objectifs, les moyens et les réalisations, repose
sur trois notions fondamentales autour de la performance, à savoir l’efficience, l’efficacité et la pertinence.
Dans cette communication, nous allons nous essayer de mettre à plat cette corrélation à travers l’expérience de l’Administration des Douanes et Impôts Indirects « ADII » en termes de « contractualisation ». Mais avant cela nous allons mettre l’accent
d’abord sur le contrôle de gestion dans le secteur public, ses spécificités, son rattachement hiérarchique, et puis sur sa
démarche de mise en place.
Mots clés : gouvernance publique; nouvelle gestion publique; reddition des comptes; responsabilisation; contractualisation;
contrôle de gestion; pilotage des performances; rendement; objectifs; moyens; réalisations; efficience, efficacité et pertinence.
Önder KUTLU, Zehra ÖZKAN, Z. Songül GÖKSEL - Selcuk University, Turkey
INSTITUTIONAL CRISIS, OPEN INFORMATION AND NEW FORMS OF ACCOUNTABILITY
Stakeholder participation in the provision of local goods and services seems to be highly important especially during the
severe global economical crisis sweeping across the world. Closeness to the end-service-users, scale and scope of activities,
financial and administrative structures and democratic aspects urge local governments to pay reasonable amount of attention
to internal and external stakeholders.
Institutional Crisis, Open Information and New Forms of Accountability Profess or Martin Smith (Department of Politics, University of York) Professor David Richards (Department of Politics, University of Manchester). This paper focuses on the explosion
of institutional crises in both the public and private sectors in recent a year (which has produced a steep decline in trust in
Martin SMITH, University of York - David Richards, University of Manchester – United Kingdom
53
many institutions by citizens). Whilst these crises have either been seen as separate events or a consequence of the 2008
financial crisis, this paper argues that these crises are linked in that they share a common failure of organisations to deal with
open information which is increasingly undermining traditional forms of accountability. By focussing on a number of examples
in the UK, the paper demonstrates that institution are facing crisis when behavioural norms developed in a period of closed
government are exposed by open information. This suggests that if organisations are to avoid crisis they need to develop new,
open forms of policy making which recognise the need to make decisions in a much more transparent environment.
The past few years has seen a continual flow of institutional crises. For example there have been a number of crisis involving the
police providing misleading information (Hillsborough, Stephen Lawrence), the food supply (horsemeat, Parliament in relation
to MPs expenses, in National Health Service in relation to standards of care and measurements of performance, in the BBC
over processes of management, in the media more generally in relation to phone hacking, in the Banks over issues of bonuses
and the setting of the Libor rate. As a result there is considerable evidence of decline in trust in institutions and declining levels
of participation.
The paper demonstrates that these crises were not a consequence of ‘bad behaviour’ but the continuation of institutional practises which had traditionally been conducted behind closed doors. Institutions had for many years been operating with limited
accountability and often high levels of secrecy. Consequently, ‘normal’ institutional behaviour has been seen as problematic
when exposed to public scrutiny. In effect, many institutions had been self-regulating through what Moran and Marquand see
as club government. Banks, hospitals, the civil service and the media regulated themselves and were effectively accountable to their own peers who determined the norms of morally acceptable behaviour. This self-regulation proved increasingly
problematic as internally defined, justifiable behaviour in the context of the institutions was not externally validated and have
been increasingly exposed. In effect, institutions operated in a context where their activities would not be fully held to account
but have be found wanting when behaviours and decisions have been revealed. This mechanism of accountability through
self-regulation worked when institutions were able to control the supply of information. Hence, the accountability processes
were validated against information that they released and the citizens did not have the information or resources to challenge
the established institutional account. Many institutions, particularly in the UK context, operated within the context of high levels
of secrecy and so controlled the supply of information.
However this process has been undermined by the development of new forms of information:
• Freedom of information and data protection has meant that organisation have been subject to pressures to release large
swaths of information.
• The development of mega data which allows analysis of organisational performance (for example comparison of organisational performance is now relatively easy to organise)
• The growth of open information sources for developing political organisation around exposing institutional behaviour.
• The digital storage of data means that large swaths of information are accessible in ways which was never before
possible.
• This digital storage has been exploited by the growth of whistle-blowers and leaks: the activities of individuals such as
Edward Snowdon and organisation such as wiki-leaks have exposed institutional information in ways that previously was
not possible.
• The politicisation of information – information is now subject to a wider analysis and critique as institutions lose their
monopoly of control and a growing distrust of institutional accounts. Hence the paper will illustrate how forms of
accountability which essentially developed in the context of nineteenth century are no longer appropriate in the age of
open information. Organisations are facing crisis because they have not adjusted their behaviour and performance to
situations where their actions can be exposed and criticised. The paper will then start to develop an understanding of
how institutions need to act within the context of open information and the implications for accountability.
This includes:
• Rethinking the principle-agent relationship;
• Develop real-time accountability rather than post-hoc accountability;
• Organisations developing ‘goldfish’ bowl ethos where the presumption that decisions processes will be exposed rather
than hidden;
• Developing open policy making with officials losing their monopoly over access to decision makers;
• Organisation using meta data and open forms of communication to rebuild trust with citizens. The paper thus illustrates
that accountability needs to adapt to new sources, forms and uses of information which have democratised and politicised the uses of knowledge.
TRANSFORMING THE SOCIAL CONTRACT OF THE ARAB WORLD THROUGH
ACCESS TO INFORMATION
Dina Mohamed Wafa - THE AMERICAN UNIVERISTY IN CAIRO, Egypt
The past few years have witnessed a wave of unrest in the Arab world with calls for equity and freedom. Citizens have
frequented the polling stations in several countries to voice their opinion on new constitution drafts and leaders. Yet did the
toppling down of several regimes sufficient to bringing the demanded change and meeting people’s expectations? In several
Arab countries citizens are offered patronage through public sector employment, subsidies, and limited taxation (Razzaz and
Razzaz 2012). The social contract imbalance offers little support to citizen voice and representation of all segments of society
in holding governments accountable. There is a general agreement by several independent international organizations that the
right to access information is a basic citizenship right essential in promoting accountability and citizen engagement (Almadhoun, 2012; ANSA-AW 2013; IBP 2012; FOIAnet 2013; Transparency International 2013; UNESCO 2013). This research will
explore the development toward promoting access to information to empower citizen voice in the Arab world, with a focus on
those of the Arab Spring.
Sub-theme 3 / Sous-thème 3
Capacity-building in the Times of Changes and
Decentralization: organization and human capital
development at national, subnational and local
government levels / Renforcement des capacités à
l’heure des changements et de la décentralisation :
l’organisation et le développement du capital
humain au niveau du gouvernement national,
infranational et local.
LA DÉCENTRALISATION AU CŒUR DU DÉVELOPPEMENT LOCAL : CAS DE BÉJAÏA
M. BELATTAF et K. KHEBBACHE - FSECG-LED – Université de Béjaïa, Algérie
Pendant longtemps, l’espace local a été considéré comme un lieu d’application des décisions des politiques nationales :
implantation d’infrastructures de transports, de santé, administratives… Dans beaucoup de pays, l’Etat, pilote du développement, avait en charge, via les plans de développement, de conduire les dynamiques sociales et économiques pour améliorer
les conditions de vie des habitants. Du point de vue des entreprises, le niveau local était au mieux considéré comme support
à leur activité, en tant que composant de leur stratégie d’implantation.
Aujourd’hui, le contexte a profondément changé : on est passé d’une lecture d’un espace local dépendant des centres de
décision extérieurs, à un espace local perçu comme générateur de sa propre dynamique de développement en puisant dans
ses capacités d’initiatives et d’organisation. Chaque région, chaque territoire même, a des traits qui lui sont spécifiques dont il
faut tenir compte dans l’élaboration des processus de développement et plus encore dans leur conduite. Le développement au
niveau local (DL) vise en premier lieu à associer tous les acteurs locaux : élus, professionnels, associations, administrations…
Leur objectif consiste à élaborer puis à faire fonctionner un projet de DL qui crée une synergie entre :
• Les potentialités du territoire (ressources agricoles, industrielles, touristiques, culturelles, …)
• Ses ressources humaines (dynamisme et qualification, esprit d’entreprise, savoir-faire local…)
Ensuite, le DL est accompagné par une dynamique territoriale et une stratégie de développement bien adoptée, où l’on insiste
ici sur le rôle que peut jouer un territoire toujours au niveau local, pour mieux connaître le tissu économique et la conjoncture
locale. Le problématique du DL se décline en plusieurs approches renvoyant à 2 types de perspectives conventionnelles:
54
• Une approche purement administrative dont le credo et le rapprochement de l’administration du citoyen, dans une
optique exclusivement de déconcentration des pouvoirs.
• Une approche socioéconomique qui tend à se frayer un chemin problématique et ardu à partir d’une optique de
redistribution des ressources. Cette approche a vocation de combiner les critères de capacités d’initiatives locales,
de recherche et d’innovation visant à une refondation d’une nouvelle approche de développement portée par des
perspectives paradigmatiques innovantes incluant les prolongements territoriaux locaux et régionaux.
55
Cependant, ces réformes, qui ont pour objectif de donner aux collectivités locales les moyens d’accomplir leurs missions,
ont-elles permis une gestion plus efficace et plus durable des affaires locales et une meilleure prise en charge des services
publics de proximité? Comment concilier besoins locaux et exigences programmatiques sectorielles à travers une adéquation
des moyens et des missions des collectivités locales?
Notre réflexion tentera d’apporter des éléments de réponse à ces questionnements, à travers l’illustration du cas de la wilaya
de Béjaïa, en Algérie.
administrative reform. Topics like emphasizing the decisive role of market economy, administrative approval simplification, its
state-run public institutions reform and invigorating its social organization development will be highly stressed.
In its third section, it targets on China’s new policy and trend on enhancing its public service delivery system. The new generation leaders have made more political commitments to promote its citizens’ social welfare scale, equality and quality. The
typical fields such as healthcare service, educational equality, pension system and public housing provision will be introduced
and reviewed intensively.
M. BELATTAF, FSEG – Université de Béjaïa (Algérie)
Lastly, the authors conclude to summarize its new trend and highlights from an explanatory perspective. Several explanatory
reasons will be advanced to help scholars and experts who are interested in China to understand China’s ongoing administrative reform. In addition, the article will make a preliminary assessment on its reform outcome and offer a prospect for China’s
new administrative reform and its modern administrative state building under Xi’s leadership.
En 2006, le PNUD, dans une étude sur la pauvreté en Algérie, a identifié 177 communes vivant dans des conditions d’extrême
pauvreté, dont 70% des pauvres localisés dans les zones rurales. Deux plus tard, en 2008, une autre étude sur les finances
des communes, avait relevé que plus de 95% des communes souffraient au début des années 2000 de déficit : passant de
250 millions DA en 1999 à 31,5 milliards DA en 2006.
LEADERSHIP AND ORGANIZATIONAL LEARNING IN LOCAL ADMINISTRATIVE
ORGANIZATIONS: A MULTIPLE-CASE STUDY OF THREE TOWNS IN CROATIA
SITUATION DES COMMUNES EN ALGÉRIE : DÉPENDANCE, PAUVRETÉ ET
MANQUE DE MOYENS. COMMENT RÉUSSIR LEUR DÉVELOPPEMENT ?
Des assises régionales sous l’égide du CNES, devant s’intéresser au Développement local et aux attentes des populations
se sont déroulées à travers le territoire national durant le dernier trimestre de 2011, structurées autour de quatre ateliers. La finalité
et l’objectif se concentraient autour du thème « Concertation pour définir les objectifs d’un meilleur développement local
et les adapter aux attentes de la population », pour s’enquérir de la situation des communes afin de dégager les moyens
et les solutions pour leur « meilleure gouvernance » et leur développement. Les résultats « de synthèse » ont été disséminés
durant l’année 2012, faisant état des discussions, débats et propositions qui se sont dégagées des ces différentes rencontres
régionales, mais sans réelles actions concrètes.
Il ressort évidemment de grandes attentes, moyens dérisoires, autrement, une situation intenable dans laquelle la plupart
des communes, notamment rurales, se débattaient : problèmes de gouvernance, manque d’encadrement, insuffisance des
ressources financières, chômage,….
Avec un tel état des lieux peu reluisant, quelle est la situation de la pauvreté (des communes) en Algérie ? Quelle est l’origine
de ces difficultés chroniques ? Comment y remédier à cette situation ? Quels moyens engager pour leur permettre de sortir de
leur léthargie ? Comment réussir leur développement (local) ?
C’est à cet ensemble de questions que nous allons nous intéresser dans le cas des communes en Algérie : situation actuelle
et perspectives.
Jasmina Džinić, University of Zagreb, Faculty of Law, Croatia
The aim of the paper was to conduct a preliminary verification of theoretical postulates regarding correlation between the
leadership and learning processes in administrative organizations.
The basic research hypothesis is that inclination towards organizational learning is positively correlated with administrative
leadership in Croatian local administrative organizations, notwithstanding other organizational and contextual variables, such
as number of employees, professional training budget, organizational structure and ruling political party.
In order to construct an empirical study, a multiple-case study in three Croatian city governments has been applied as the main
methodological approach. The starting point of the research is based on three levels of learning in organizations (individual,
group and organizational) as well as two processes of learning across different levels (feed-forward and feed-back processes),
an organizational learning framework developed by M. M. Crossan et al. (1999). The main variables have been measured on
the basis of civil servants’ perception of certain indicators of inclination towards organizational learning and administrative
leadership in each organization. Accordingly, the data have been gathered by the survey conducted among the personnel of
selected organizations.
The results of correlation analysis between each level of learning in organization and each process of learning across the levels,
on one hand, and administrative leadership, on the other, are presented in the paper. In accordance with the obtained results,
specific recommendations for the organizations concerned as well as some general conclusions are provided.
Keywords: leadership, organizational learning, local self-government, Croatia
UNDERSTANDING CHINA’S ADMINISTRATIVE REFORM UNDER XI’S LEADERSHIP:
ITS NEW TREND AND HIGHLIGHTS
Keyong DONG, School of Public administration & Policy, Renmin University of China
Since 1980s China has been committed to build a modern administrative state based on its market socialism economy
by Chinese-style administrative reform. Although a series of accomplishments have been achieved, there are still a few of
challenges and problems. When a new generation political leaders rise to power since 2012, its traditional administrative
reform has been invigorated and updated to produce lots of new ideas and policies which are worthwhile to be noticed and
studied. Where does China’s administrative reform go under Xi’s leadership? How to understand and evaluate those new ideas
and policies? To what extent a new type of relationship between its state, market and society will be reconstructed?
This paper aims to answer those questions by means of providing a preliminary picture and introduction on China’s ongoing
administrative reform under Xi’s leadership. Firstly, it focuses on offering an overall review on the general ideas to push its new
administrative reform. Particularly, its basic background, general objective, key issue and its new trend of China’s government
reform after the 2nd and 3rd Plenary Session of 18th China’s Communist Party National Congress will be addressed. A
series of focused fields such as its mega-ministry reconstruction, performance evaluation in public sector and anti-corruption
reform will be covered, especially their latest policy reforms and innovations to build a more clean, professional and efficient
bureaucratic system.
Secondly, it examines its new type of relationship among its state, market and society. Conventional studies show that the
mode of China’s state, market and society is unbalanced and asymmetric which its state sector are more powerful than other
two sectors, however, things are changing gradually and the rising of market and society is more remarkable during this new
56
DECENTRALIZATION AFFAIR IN LOCAL GOVERNMENT (REVITALISATION POLICY
STUDY AREA BELOW MARKET RESERVES AS A CULTURAL TOURISM AREA IN
THE CITY PEKANBARU)
Tuti Khairani Harahap, S. Sos, M.Si, Ashaludin Djalil, Heri Suryadi, Faculty of Social and Political Science University
of Pekanbaru Riau - Indonesia
Warsito Utomo (2001 ) describes the delegation of authority and decentralization is in its application to the autonomous regions
, the level of autonomy of a region is measured from decentralized affair , the more decentralized authority and the regional
affairs will be more autonomous , while the letter e in article 1 of Law no. 32 of 2004 on regional government stated that
decentralization is the transfer of power to the government by the government of the Autonomous Region in the framework of
the Unitary Republic of Indonesia .The first basic element of Local Government (LG) in the State Regional Affairs of the Republic
of Indonesia is that regional authority to manage and administer governmental affairs submitted to the Regional based role in
the setting of Act number 32 of 2004 . In Article 11, paragraph 1 of Law No. 32 of 2004, there are three criteria used in dividing
the affairs of government, namely: externality, accountability and efficiency. Based on these criteria will be composed of a clear
division of authority between levels of government (central, provincial, and district / city) of any field or sector of government.
As stated in the book «The Grand Strategy Implementation» are government issues, including the obligatory functions of
spatial planning matters, and cultural affairs. Based Spatial Pekanbaru in 2006 that the Lower Market area has been set as
a heritage area, but look at the current condition of the area does not reflect the cultural heritage area, in which the spatial
arrangement is very chaotic, social vitality of the community fairly seedy or are in below the poverty line. But behind these
phenomena, it turns out a small portion of the Lower Market area is able to contribute quite significantly to the economy in
57
the form of PAD Pekanbaru and Riau Province, which is the tourist market. On the other hand already in tetapkannya Heritage
Buildings Great Mosque of Pekanbaru by decree of the Minister of Culture and Tourism KM 13/13.007/MKP/2004 , regarding
the determination of Siak Palace and a number of other sites including the Great Mosque of Pekanbaru is the cultural heritage
objects , sites , or areas RI Law No.5/1992 protected . But there are still many historical buildings in the Lower Market area
that has not been protected and its condition at the time of this very concern or not maintained.
Under the Law of the Republic of Indonesia No. 5 of 1992 on Cultural Heritage, that the objects of cultural heritage is a
man-made objects moving or not moving in the form of entity or group, or part thereof, or the remainder, which was at least
50 (fifty) years, and is considered to have an important value for history, science, and culture. When referring to the Law of
glasses, it turns Down Market area has several old buildings or the history that has been through some period of power, call it
during the reign of the Kingdom of Siak, until the independence of the Dutch colonial Indonesia. In addition to the building, the
social life of the people and cultures who live in the Lower Market area also did not escape the attention. The study focuses
on the revitalization of all the historical buildings and traditional Malay buildings , as well as socio-economic and cultural life of
the community in the Lower Market area in the city of Pekanbaru to turn back ( in revitalization ) with the goal to be achieved
is to formulate conservation policies buildings historic / traditional, and economic policy , social and cultural rights as a form of
decentralization in Pekanbaru that aim to enable the Lower Market area as a cultural heritage tourist area . The results showed
that not optimal Pekanbaru City Government in implementing the government affairs. ekanbaru research recommendations
that local governments realize the spatial planning policy and culture by involving all stakeholders .
Keywords: Decentralization, Policy, Tourism, Cultural Heritage
COORDINATION AND CIVIL SERVICE REFORM IN INDONESIA (1999-2009)
Sjamsiar Indrati, Romy Hermawan - Indonesia
The background of civil service reform in Indonesia reveals the emergence of the reformation movement in 1998, the fall of
authoritarian the New Order regime, followed closely by civil service reform. The implementation of the civil service reform
program was carried out by both central and local governments. The implementation of this program required cooperation
among actors (i.e. ministries, agencies and local governments), known as coordination. Currently, the coordination that occurs
between actors tends to be rigid and hierarchical. As a result, targets are not efficiently and effectively met. Hierarchical
coordination, without a strong infrastructure of public sector, tends to have a negative impact achieving the civil service reform
program. The purpose of this study is to analyze the linkages between coordination mechanisms and the factual implementations of civil service reform programs. In this qualitative research, the coordination mechanisms and implementations of
civil service reform programs are demonstrated by means of case studies of the State Ministry for Administrative Reform, the
National Civil Service Agency and the National Public Administration Institute. The coordination mechanisms in these ministries
and agencies were analyzed based on indicators of effective and efficient coordination. The results of this analysis show the
coordination mechanisms and the implementations of civil service reform are more successful using integration than hierarchical mechanisms. Based on this analysis, it can be concluded that the integration type mechanism of coordination (hierarchy,
market and network) is a suitable type to be implemented in Indonesia for a sustainable civil service reform program. Finally,
to achieve a coherent civil service reform national policies according to the central government’s priorities are indispensable,
establishing the coordination mechanism that can be adhered to throughout all reform sectors.
Keywords: Bureaucracy, Civil Service Reform, Coordination.
CAPACITY-BUILDING FOR STRENGTHENING BUREAUCRATIC REFORM
IN INDONESIA
Erna Irawati, National Institute of Public Administration-Indonesia
This paper looks at the work of Indonesia’s government institutions (central and local government) in designing and implementing
their program to comply with the national Bureaucratic Reform project. The goal is to show aspect of capacity building that
support the implementation of Bureaucratic Reform. A wide arrange of approach has been done to ease the process of change.
This paper highlights the importance of capacity building in shaping the actions of government institutions to perform their
changes. The capacity building aspects explored are the creation of roadmap, managing the change/reform, and approaches
being used in the process of reform.
By examining those aspects, this paper shows the important factors of capacity building to support organizational change program.
58
HUMAN RESOURCES RETENTION IN LOCAL GOVERNMENT: REVIEW OF
UGANDA’S POLICY AND INSTITUTIONAL MECHANISMS FOR PERFORMANCE.
Umar Kakumba, Public Administration and Management, Makerere University College of Business and Management
Sciences, Uganda
This research paper presents results of a study conducted to examine the human resource (HR) talent retention in Uganda’s
local government from the framework of existing policy and institutional arrangements. The paper derives from a background
that, despite the policy and institutional reforms, public service in less developed countries and local governments (LGs)
in particular continue to grapple with the challenge of effectively retaining resourceful employees, which affects the extent
and quality of service provision. The reorientation of local government management in Uganda with the separate personnel
system of decentralisation, where each district recruits own staff through the District Service Commissions (DSCs), but then
maintained under the central government (CG) public service single-spine salary structure, bears several challenges to local
HR performance and retention.
Numerous reports highlight concerns about districts facing increasing employee turnover, absenteeism, abscondment and
poor HR performance (JARD, 2006; JICA, 2008; Kakumba, 2010; MoLG, 2012). Worst case scenarios of employee turnover
and failure to attract staff are reported among health workers (doctors, nurses, and midwives), agriculturalists, engineers,
surveyors and accountants.
Results show that while low salaries and poor remuneration is often presented to explain the increasing HR retention problems,
the Ugandan case suggests more intricate issues pertaining, especially, to the overbearing central government (CG) policies
and structural arrangements that set in a potentially challenging socioeconomic and political environment for effective HR
retention. The paper argues that the high expansion of the LG sub-sector has not moved in the same direction with the necessary policy regimes and organisational/ structural adjustments, which poses serious retention and HR performance challenges.
MODERN GOVERNANCE CAPACITY BUILDING
IN THE PEOPLE’S REPUBLIC OF CHINA
Geraldz LAN - Renmin University of China
The Chinese government has recently launched a campaign to build a modern governance system to help furthering China’s
reform and development. It has worked to di-sect the national directives on furtherance of the reform into over 300 specific
operational tasks. However, as to what this new modern governance system is, how it can help China’s further development,
how it will reshape the central and local relationships, how this system of governance would compare with western system of
governance, and what challenges still lie ahead in implementing this system of modern governance remains tp be a debated
question. This paper works to sort out the different views on capacity building in China in contrast with western literature on
governance and discusses the challenges China still faces in implementing its strategies for capacity building.
FROM CENTRALIZED REGULATION TO DECENTRALIZED GOVERNANCE:
THE POLITICAL LOGIC OF CHINA’S FOOD SAFETY REFORM UNDER XI’S LEADERSHIP
Peng LIU, Chun WANG - Renmin University of China
In recent years, a few of food safety scandals caused by its notorious regional protectionalism have made great challenges to
China’s state capacity seriously. Actually China has commenced to reform its fragmented and decentralized food safety regime
a few of years ago, but it still contributes little to improve its food safety situation. However, Chinese new political leaders have
achieved to reconstruct its previous food safety regime and revise its food safety law greatly since 2013, which empower more
to its local governments and social organizations in food safety governance. Apparently, a new type of value “decentralized
governance” is replacing its former ideas like “centralized regulation”. Is China’s food safety regime really going toward a
new type of “decentralized governance” mode? How to understand and explain this regime reform in Chinese context from
political perspective? Can this new decentralized governance model really matter to build a more effective and efficient regime
for capacity building which makes its food much safer? This paper attempts to answer those research questions based on a
mixed study which combined both of empirical and normative analyses.
Firstly, it employs a few of empirical evidences and data to portray the process and features of this new round reform since 2013
which can be defined as a “decentralized governance” model from two dimensions: central-local relation and governance tool
usage. Secondly, it is intended to provide a theoretical framework to explain and understand this transformation from political
perspective such as its political mega-environment, regulatory failure and accountability facilitation strategy. It argues that the
new “decentralized governance” model can not be isolated with its administrative reform ideology of new political leaders.
And it is a typical policy learning based on lessons drawn from its previous regulatory failure. Also, this new regime can be
59
much easier to define regional regulatory accountability to avoid local governments’ irresponsible actions. Thirdly, the authors are
offering an assessment framework to evaluate this new reform whether it can be superior to the former regime to forge a more
efficient and effective governance mode. Also, a possible prospect of this new “decentralized governance” in China’s food safety
governance will be also addressed. We conclude that “decentralized governance” is a useful innovation of institution to improve
China’s food safety governance capacity even if it is not a panacea which needs other supplementary policies to support.
INFORMATION SYSTEMS IN ORGANISATIONS
Muhenda Mary Basaasa, Uganda Management Institute
Information is data that has been processed in some organized manner and comprises both electronic and physical information. Data is raw input in form of numbers, images and words that may be derived from measurement experience or empirical
observation. And so if data is raw observations, information by contrast represents data arranged in a meaningful pattern
(Hoslp, 2005 rather than being a list of numbers taken from an observation.
Information is vital to communication and a critical resource for performing work in organizations. Public officers spend most of
their day in meetings, reading, writing, and communicating with other managers, subordinates, customers, vendors, and other
constituents via telephone, in person, or by e-mail. Indeed, management itself is information processing. It involves gathering,
processing, and disseminating information.
A manager must track and/or react to information flowing from sources inside and outside the organization. The manager
processes this river of information and disseminates it in one of four ways: stores it, uses it, passes it on, and/or discards it. For
example, during the course of a normal business day, a marketing manager for a high-technology company receives information in the form of e-mail, telephone calls, letters, reports, memos, trade publications, and formal and informal conversations.
The organizational structure must be capable of managing this information throughout the information lifecycle regardless of
source or format (data, paper documents, electronic documents, audio, video, etc.) for delivery through multiple channels that
may include cell phones and web interfaces.
CAPACITY AND COMPETENCY AS REQUIREMENTS FOR EFFECTIVE AND
EFFICIENT SERVICE DELIVERY IN LOCAL GOVERNMENT: A SOUTH AFRICAN
PERSPECTIVE
therefore does not need the competency, for instance, to be able to read and write or to have completed a certain level of
education. It is the humble opinion of the author that it is due to a lack of capacity and competencies that only 13 percent of the
278 municipalities in South Africa got a “clean audit” from the Auditor-General for the 2012/2013 financial year. His opinion is
that a lack of «committed» leadership lies behind a sharp deterioration in financial management in municipalities. The question
could therefore duly be asked: could a councillor that does not have the capacity and competencies serve the community
to the best of their ability as expected and deserved by the community? In many instances the assumption could be made
that the councillor serves for purposes of his or her own financial benefit (sitting allowance, cell phone allowance, etc.) or their
political masters. The problem of incapacity and incompetency is mainly a problem in municipalities in the more rural areas.
The problem of a lack of capacity and competencies could also relay to South Africa’s past where not all citizens had the
opportunity attend school or other educational institutions. Municipal councillors must be able to dissect financial statements
strategic plans, draft by-laws and many more to ensure that municipal officials fulfill their functions at a high standard. Municipal
officials must not be able to lead councillors by the nose and make them believe everything is fine. Councillors must have the
ability to decide whether the legitimate expectations of the community are met. The arguments in this abstract is based on a
survey that was done by the author for the Free State Provincial Department of Cooperative Governance and Traditional Affairs
(one of the nine provinces in South Africa) which has shown that a lack of capacity and competencies amongst a significant
number of municipal councillors is problematic and do have a direct negative influence on service delivery.
THE NEWPARADIGM OF REGIONAL DEVELOPMENT AND THE SYSTEM OF
REGIONAL STRATEGY IMPLEMENTATION
Agnieszka Pawlowska, Institute of Political Science, University of Rzeszow - Poland
The new paradigm of regional development reflects the shift form the centralized model of policy-making to multilevel governance,
where efficiency, conditionality, evidence-based policy are of the crucial importance. Regional strategies are evaluated according
to their genuine results – accuracy of strategic priorities and efficiency of their accomplishment are to be empirically tested.
The new paradigm of regional development promotes restricted interference of the central authorities to the policy and economy
in the region, instead greater autonomy of regional authorities is expected in reference to the vision of regional development
and its actual accomplishment. Regional government is the key player in the regional policy planning and implementation, yet
it is not in possession of all resources, competencies and skills to reach all objectives of the regional strategy. Input of local
authorities, other public actors, private and civic stakeholders is indispensable to perform regional development successfully.
CD OLIVIER, Central University of Technology, Free State, South Africa
Section 40(1) of the Constitution of the Republic of South Africa, 1996 (the Constitution) determines that: …”the government
is constituted as national, provincial and local spheres of government which are distinctive, interdependent and interrelated”.
When one compare the concepts of “levels” and “spheres” with each other then it becomes clear that “levels” implicates a
hierarchy of some sort, while “spheres” as referred to in the Constitution could be interpreted that there is some characteristics
of independency or distinctiveness as mentioned in the Constitution. Note should, however, also be taken of the words
“interdependent” and “interrelated” as determined by the Constitution. The latter two suggests that the three spheres could
actually not function without each other and that their functions and the services they are rendering are interrelated. South
Africa, as a developing country, has 278 municipalities which are classified as eight metropolitan municipalities, 42 district
municipalities and 228 local municipalities that serve the whole geographical area of the country. Municipalities have a very
specific role to play in service delivery in the sense that it is the sphere of government closest to the citizens, and where the
citizens could experience on a daily basis whether services are delivered in an effective and efficient manner. For example: is
there clean drinkable water, is the refuge removed and the lights on? To make it possible for local government to function in an
effective and efficient manner, capacity and certain competencies are needed. When one refer to capacity and competencies
a distinction could be made between what capacity and competencies are needed by councillors and what capacity and
competencies are needed by municipal officials. In South Africa he under spending of municipal budget is not a strange
phenomenon. And the reason provided for under spending is usually “a lack or shortage of capacity”. Although funds will
always be limited, it is not always the only factor for poor delivery of services.
For the purpose of this presentation the focus will be on the capacity and competencies of municipal councillors, as much
have been said about the expected capacity, skills and competencies expected from the municipal manager and his or her
staff. The focus is, however, very seldom on the municipal councillor. The fact that municipal councils fulfill an oversight role to
ensure that the money of the inhabitants are spend effectively, efficiently and economically, they need capacity (knowledge of
the functioning municipal business) and competencies (to know how to interpret the budget, legislation and policies). Unfortunately, due to the proportional system used in South Africa, the electorate (in all three spheres of government) do not have the
luxury to vote for a particular individual they believe to have the required capacity and competencies to serve them best – they
have to vote for a specific political party and based on the performance of the party in, for instance, a local government
election, the party will deploy a person on their list (listed due to loyalty to the party) as municipal councillor. Capacity and skills
are not requirements to become a municipal councillor. The only the requirements are that he person must be eligible to vote
in a municipal election and must not have a criminal record. Level of education is not a requirement. The deployed councillor
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The paper refers to the post-NPM reforms of the regional development policy. It concentrates on the questions of drivers and
stakeholders of the regional development, as well as the new instruments of controlling the implementation of regional strategy
of development. The paper is based on the results of the research, which the author and the collaborators did for the purposes
of the expertise prepared for the authorities of one of Polish regions.
The core argument of the paper moves around the issue of the role of regional authorities in preparing and implementing
the regional strategy of development. Regional government is perceived as the node of regional network, which integrates
stakeholders, engaged in accomplishment of the same objectives, combining them in networks focused on strategic priorities.
Four issues reflected in the system of regional strategy implementation are to be discussed in the paper:
1. Stakeholders of regional development – anchored in public, private and civic sectors; the author attempts to evaluate their
role – critical, essential or some – in regional strategy implementation.
2. Instruments of regional strategy execution – especially “soft”, which refer to non-coercive, non-supervisory and non-regulatory activities of public authorities, but based on informal partnerships, open coordination, influence, negotiations,
networking.
3. Mechanisms of coordination – either organized hierarchies or network structures; the suggestion on regional agency dedicated to the strategic planning and implementation will be presented, as well as some network arrangements.
4. Monitoring and evaluating the results of regional strategy implementation – the model based on the concept of multi-level
governance will be recommended.
CORRUPTION PREVENTION POLICIES. AN ANALYSIS OF ITALIAN LEGISLATION
AND EUROPEAN BEST PRACTICES
Antonella Sau, IULM University, Italy
International studies and statistics confirm the variegated nature of corrupt practices, which do not always (and not solely)
amount to criminal offences but often involve conduct that (whilst per se being lawful) may result in administrative irregularities
or more generally alter the decision-making practices of the public administration, causing delays and waste and undermining
public ethics (or the ethics of public action).
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In come countries, corruption has morphed from a “bureaucratic/pervasive phenomenon” into a “political-administrative-systemic” function which not only undermines the prestige, impartiality and the proper conduct of public acts but is also detrimental
to the very legitimation of public authorities and threatens national economies (according to the information contained in
the first EU Anti-Corruption Report from the Commission to the Council and the European Parliament (COM (2014)38 final),
corruption costs the European economy around 120 billion euros each year).
With the enactment of Law no. 190 of 2012, the Italian Parliament, which had for a long time focused on punishment of
instances maladministration, neglecting any policy of prevention, enacted legislation expressly dedicated to the prevention on
administrative level of criminal offences, focusing on administrative transparency (understood as public availability and hence
as “full accessibility” to a series of data and information relating to administrative action and organisation), setting out detailed
provisions on ineligibility for and incompatibility within administrative appointments and reinforcing codes of conduct.
The decision to impose specific publication duties on each administration is in fact associated with a notion of administrative
transparency that is no longer tied to a specific procedural activity, but rather aimed at measuring and monitoring the exercise
of administrative powers, as an instrument of control over the exercise of public powers in order to give effect to the democratic
principle and to safeguard the integrity and ethics of the public administration.
GENDER AND CAREER OPPORTUNITIES WITHIN THE U.S. FEDERAL
GOVERNMENT ARE WE CLOSING THE GAP?
Jan Wynen - KU Leuven, Faculty of Social Sciences, Public Management Institute, Belgium
Although the pay gap between men and women in the U.S. workforce has narrowed since the 1980s, numerous studies
have found that a disparity still exists. One of the primary reasons for pay disparities between men and women is the fact that
women have a lower likelihood to end up in the higher paying upper levels of organizations. Using data from the U.S. federal
employee viewpoint survey of 2006 and 2013 this article therefore examines the effect of gender on the satisfaction with the
opportunity to get a better job within the current organization while controlling for a wide range of individual and organization
level variables. Is there a gap between men and women and if so how has this gap evolved? Using a heterogeneous choice
approach, we came to the finding that a gender gap on the satisfaction with career opportunities exists and more importantly
that this gap did not decrease nor increase during the time period 2006-2013.
Keywords: career opportunities, gender, heterogeneous choice approach
Within this perspective, Italian law vests the task of preventing corruption in a complex system of planning and programming initiatives and actions aimed at ensuring adherence to the dictates of legality. According to the “knock-on” planning model, following a
proposal by a corruption manager appointed by the political and administrative management body, each administration approves
a corruption prevention plan that assesses the level of exposure of the offices to the risk of corruption and points to organisational
measures in order to reduce that risk, on the same basis as risk management and risk assessment models.
This is a model which already at first sight raises various problems within a multilevel administrative system that grants particular
autonomy to local government bodies with regard to organisation, administration and (on regional level) legislation. These problems concern both the legitimacy and the efficacy of top-down uniform administrative solutions for all public administrations
where autonomous local government bodies are not directly involved in the adoption of anti-corruption measures.
The position is complicated yet further by Italian Law no. 190 of 2012, the scope of which has been extended also to “companies
in which the public administrations hold shares and their subsidiaries with regard solely to activities performed by such companies
in the public interest that are governed by national law or European Union law”, whilst stating nothing further regarding the
specific application to persons governed by private law of provisions that have been devised and enacted for the public sector,
and without taking into account the heterogeneous nature of publicly owned companies both in structural terms (companies with
minority public capital, companies with majority public capital, in house providing companies, or public bodies controlled by the
state or other local government bodies) as well as in functional terms (companies set up to provide certain services, companies
performing administrative functions and companies providing local public services), thus leaving to interpreting bodies the task of
understanding which provisions are actually prescriptive and how actors should adapt to them.
The paper will analyse the choices made in the Italian legislation by comparing them against anti-corruption policies adopted
within the broader European context, focusing in particular on the following issues:
1) The Italian and European path to transparency as an anti-corruption instrument. Whilst an analysis of the main European
experiences in which the FOIA ( Freedom of information Act) applies demonstrates that the existence of a genuine right of
access to public information entails an entirely discretionary power for the administration over whether or not to publish data
and information (referred to as a user-driven proactive transparency), the provision of Italian law imposing a duty to publish
conceals the reluctance of the Italian legislature to recognise a genuine right to know (which is typical of systems inspired
by the FOIA). It is therefore legitimate to ask which of the two paths offers the best instrument for preventing corruption, by
virtue above all of the protection instruments provided under the various legal systems in order to protect private individuals
against inertia or inefficiency within public action.
2) Internal and external control mechanisms of the efficacy of anti-corruption measures. Within many Member States, internal
controls of procedures adopted by public authorities (in particular on local level) are weak and uncoordinated, whilst external
controls are allocated to bodies that differ significantly from one another and exercise powers that are not always aligned.
In enacting Italian Law no. 190 of 2012, the Italian legislature, which could have seized the opportunity to review the system of
internal control of local authorities, by contrast focused solely and exclusively on issues relating to directors’ responsibility and
disciplinary and accounting issues regarding the anti-corruption manager and the employees and directors of the administration
who fail to cooperate with that manager in implementing the corruption prevention plan, raising the spectre of actions for damage
to the treasury. Moreover, the position is little better in relation to external controls if it is considered that the legislation does nothing
further than vesting the National Anti-Corruption Authority with oversight and control powers, but no power to impose sanctions.
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DOES COMMUNITY PARTICIPATION ACTUALLY IMPROVE PROJECT OUTCOMES?
THE CASE OF SECOND NORTHERN UGANDA SOCIAL ACTION FUND (NUSAF2) IN
DOKOLO DISTRICT, UGANDA.
Emmy Tonny Ameny and Sylvester Kugonza, Uganda Management Institute (UMI)
Purpose: The study sought to establish the relationship between Community Participation (CP) in NUSAF2 project processes
and sub project outcomes. It was designed to achieve three objectives; examining the relationship between community
participation in planning processes and NUSAF2 sub project outcomes, establishing the relationship between community participation in NUSAF2 implementation and desired sub project outcomes and finding out the relationship between community
participation in activity monitoring and NUSAF2 sub project outcomes in Dokolo district.
Methodology: A correlation study design was used and a population of 178 respondents was identified of which 128 were
drawn as a sample. A response rate of 92.1% was obtained.
Key findings: community participation in planning processes was positively related (.286**) to sub project outcomes while a
positive relationship between community participation in NUSAF2 implementation and desired sub project outcomes (.299**)
was obtained and community participation in activity monitoring was positively related (.284**) to sub project outcomes.
The results indicate that involvement of beneficiaries in planning processes such as enterprise selection, action planning,
resource identification and proposal selection creates ownership and commitment to sub project activities. Similarly, findings
indicated that involvement in implementation and monitoring leads to improved adoption of new farming technologies. The
study confirms studies elsewhere that community participation is constitutive element of good governance that leads to
positive project outcomes.
Key Recommendations: Project management should adopt more rigorous modes of sensitization, more technical implementation support should be provided to beneficiaries and involve local leaders and technical staff in monitoring.
Open call
Appel ouvert
Originality: The paper is based on an original research undertaken by the author and makes a contribution to on going global,
policy and academic debates on whether CP actually contributes to desired project outcomes (results). It makes critical
analysis of beneficiary involvement in project planning, implementation and activity monitoring.
Key words: participation, governance, social action, project outcomes
THE DECENTRALIZATION OF THE EARLY CHILDHOOD EDUCATION IN BRAZIL:
CHALLENGES TO THE LOCAL GOVERNMENT
Maria do Carmo Meirelles Toledo Cruz and Marta Ferreira Santos Farah, FGV Brazil
This paper examines decentralization (transfer from federal to local governments) of early childhood education in Brazil from the
perspective of local impacts. The Brazilian System of Social Protection has been restructured in recent decades, in particular
following the adoption of the Federal Constitution of 1988. As part of this process, responsibility for delivering educational
services has been transferred in particular to the state and municipal levels of government. There is a significant variation in the
degree of decentralization achieved under this policy among Brazilian states.
This study analyzes the decentralization of the early childhood education (up to three years) in Brazil from 2001 to 2013.
Responsibility for such services was transferred to local - Governments, while allowing for services to be delivered by nongovernmental and private organizations. This Federal governance approach has resulted in a complex system which includes
new roles and regulations, and establishes responsibilities to be assumed by the local governments. The federal government
has the responsibility for the broad policy framework for the Childhood Education Policy. The federal government is responsible
for national funding rules and guidelines and also by reducing the differences between the states. The implementation is done
by the local governments, with the participation of private organizations.
The Constitution calls for cooperation between the Central government, States and the Local Governments, but competition
and rivalry between these actors is an obstacle to the expansion of access to services, and to ensuring the rights of children.
Only 24% of children had access to infant day care services in Brazil in 2010 (ALVES; SILVA, 2013).
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The work shows that federal standards were applied differently in distinct Brazilian states, with different results and outcomes.
One result is inequality of access to infant daycare services. There are different management models for day care Policy in
Brazil. One is implemented by the public administration (Local government), the other by third parties (non-governmental and
private sector entities).
The paper shows a cooperation of the Central government and the states with municipalities in financing the construction of
public facilities as well as covering some operating expenses.
Keywords: Public Policy´s Decentralization; federalism; cooperation; Early Childhood Education
CULTURAL SERVICES IN MUNICIPALITIES AS A TOOL FOR CREATING URBAN
CULTURE: THE CASE OF SELÇUKLU
Önder KUTLU*, Z. Songül GÖKSEL**, Zehra ÖZKAN*** - Professor of Politics, Head of Public Administration Dept.
Selcuk University, ** Research Assistant at Selcuk University, Public Administration Dept., *** Research Assistant at
Selcuk University, Public Administration Dept.
As the idea and principles of local government responsibilities have been shifting from purely service provision on basic public
policy areas i.e. infrastructure, street cleaning, regulatory activities etc. to social and cultural services, the resultant environment
not only connects individuals around the theme of common ‘city culture’ but also mobilise them to pay attention to the
conditions of provision.
Cities do mean more than physical structure and land use, because they own daily life activities and relations, ideas, political
preferences, social relations and interactions, which are distinctive in a given time period and human elements. Architectural
design, aesthetic significances and local physical and concrete values shape the expectations and specifications in urban
culture.
The place and its history is a centrepiece of building element at urban identity and city culture. For this reason, it might be wise
to search and evaluate the city and urban history in order to find common historical elements rather than creating an artificial
and ‘designed’ motto to ‘unite’, ‘integrate’ and ‘shape’ the individuals for the cost of the community. This may be deemed as
‘brainwash’ or ‘social engineering’ for some observers. Cities could produce effective solutions to social, cultural and physical
problems of the communities in line with traditional values and experiences.
Selcuklu Municipality, being formed in 1989 has been carrying out certain intentionally conceptualised cultural policies to
foster a conception of ‘Selcuklu’ heritage among its people, referring to the history. The paper aims to measure the effects
of the policies, especially the means and ways of implementation initiated by the municipality. The claimed ‘culture creation’
and ‘belonging’ to a wider and deeper historical heritage (Selcuklu state) seems to settle on a safe ground of history and
materialise the elements produced by previous generations. The activities involve scientific, popular and conventional aspects
and projects, restoration of historical buildings and monuments and archaeological excavations, symposiums and various
publications. The examination tries to evaluate the appropriateness and effectiveness of the activities to create the cultural
impact in a relatively new local authority (25 years of age) with considerably old values and remnants (one thousand years).
The paper examines the cultural activities of Selcuklu for the last four years during the term of the current mayor, who claims
to create a ‘Selcuklu culture’ among its inhabitants as well as its personnel. Besides, a survey among the personnel and the
stakeholders of the municipality is conducted. An interview with the mayor is also conducted. Research seems to show that
the culture creation project appears to be successful in a reasonable degree. Insight information is also provided as the authors
have direct or indirect affiliations with the municipality.
The paper is a contribution to local government literature in general and public policy literature in particular. The lessons
learned from the Selcuklu case could be valuable for other local authorities and politicians, so they concentrate on the cultural
dimension to fabricate a common urban culture.
Key Words: City Culture, City Awareness, City Identity, Selçuklu Municipality, Cultural policies
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LE RÔLE DES REGIONS MÉTROPOLITAINES EN COLOMBIE, DANS L’EXÉCUTION
DE POLITIQUES PUBLIQUES DE COMPÉTITIVITÉ, DÉVELOPPEMENT
ECONOMIQUE ET INNOVATION
EDGAR VARELA BARRIOS, Ph.D. Administration, Université de Montréal, Professeur titulaire, Université del Valle
and RUBEN DARIO ECHEVERRY, Economiste et Magister en Economie et Développement, Université Catholique de
Louvain (Belgique), Professeur associé, Université del Valle
Cet exposé aborde le rôle des gouvernements locaux, dans les grandes villes colombiennes et dans les régions ou aires
métropolitaines (S. Boisier, 2006 ; F. Fristzche et M. Vrio, 1999 ; R. Méndez, 2007) qui se sont développées autour d’elles ; et
les figures institutionnelles pour la coordination de politiques (R. Strent, 2008 ; J. Borja, 2002 ; E. Varela, 2014). Le texte évalue
les réponses de Bogota, Medellin, Cali et Barranquilla, en comparant ses forces et innovations institutionnelles (S. Nagel,
1986 ; T. Dannestam, 2008). Ces régions métropolitaines essaient son positionnement dans des dynamiques de compétitivité
et développement économique (Q. Brugé et R. Goma, 2002 ; J. Medina 2012 ; P. Ciccolella, 2006), se remarquant des buts
tels que ceux de générer des modèles de Villes digitales, Villes d’entreprise ou Villes intelligentes (Smart cities), (C. Ventriss,
2012 ; S. Sassen, 2008). Se documentent les principales limitations qui mettent un obstacle sur l’innovation institutionnelle. La
Colombie est une république unitaire avec un haut degré de centralisme et les municipalités sont des interlocuteurs délégués
dans l’exécution de politiques. On prétend à partir des gouvernements sous nationaux, la formulation des plans stratégiques
et prospectifs et la redéfinition des agendas publics pour l’innovation. La création des aires métropolitaines, des districts
spéciaux ou des dynamiques de configuration de régions métropolitaines à caractère informel, rendent évident les réponses
de ces territorialités, en vertu du rôle débile de l’enceinte sous nationale (Gouvernements départementales). Ceci implique,
de promouvoir à partir des administrations publiques territoriales, la nouvelle Gouvernabilité du territoire, la gestion de ses
infrastructures (routes, ports et aéroports), l’habitat, le renouvellement urbain, la facilitation des ambiances propices pour la
consolidation des districts industriels et d’affaires ; la formation des ressources humaines et l’investigation et développement
de chaque région (E. Cabrero, I. Orihuela et A. Ziccardi, 2003). Implique aussi l’innovation dans la gestion publique territoriale
et la redéfinition des rôles des Gouvernements locaux et de ses structures de coordination. Il faut remarquer le poids croissant
dans l’implémentation des politiques publiques –dans ces régions métropolitaines– du secteur privé, de la propre académie
et les efforts innovateurs de coordination, collaboration et l’association publique-privée (J. M. Pascual, 2007 ; C. I. Restrepo,
2007; C. Velazco, 2007 ; S. Pineda, 2012). Le texte fait finalement un bilan des rapports échelonnés entre les différents niveaux
de l’administration publique, et le rôle qui joue dans ces politiques de compétitivité le gouvernement national.
Mots clés :innovation, regiones metropolitaines, competitivite, coordination, planning prospective.
IMPROVING STATE ADMINISTRATION ACCOUNTABILITY FOR PERFORMANCE
WITH CIVIL SECTOR MONITORING: CASE STUDY OF ‘BORDER MONITORING’
IN CROATIA
Goranka Lalić Novak, PhD, assistant professor, Department for Administrative Science, Faculty of Law, University of
Zagreb
There are numerous legitimate sources of expectations for public servants and managers. Such sources include immediate
supervisors, elected officials, colleagues, professional associations, and citizens (Romzek and Dubnick, 1987). With these
multiple stakeholders, public organisations struggle to meet and fulfil their often competing obligations.
In addition to these traditional accountability systems, under the notion of managerial reforms of the public sector, a new
approach to accountability has evolved. Accountability for performance assumes that when individuals and organisations are
held to account for their behaviour and the consequences of their behaviour, their performance will improve.
Another important aspect of accountability is monitoring of administrative performance. In democratic societies, various
mechanisms have been set up with a view to supervising and monitoring the procedures of executive authorities. However, one
should not forget the supervision carried out by civil society and citizens, as no one is better positioned to monitor government
services to ensure that they perform well and transparently than the citizens who use those services (Kosac et al, 2010).
Given the above, this paper will tackle two interconnected questions. First, is accountability for performance the right model
for all administrative actions, including those of higher political salience, such as the protection of state borders and the fight
against irregular migration? Second, can the monitoring of state administration by local institutions improve administration
accountability for performance? Consequently, the analysis in the paper is twofold. First, accountability mechanisms and
instruments of Croatian state administration have been analysed, with the emphasis on the Ministry of the Interior. Second, the
analysis of means of civil sector monitoring has been conducted using the example of border monitoring in Croatia – monito-
67
ring the work of the Ministry of the Interior in the field of border and migration management. Generally, the purpose of border
monitoring is to harmonise the procedures aimed at protecting the state border with the interests of society, and to establish
procedures to guarantee the respect and efficient protection of human rights.
Pour compléter notre recherche et renforcer la validité interne de nos données qualitatives, nous avons procédé à une triangulation de nos sources (Jick, 1979), en se basant sur des données secondaires (Rapports d’audit, rapports de contrôle de
rectorat, rapports de la chambre régionales des comptes…etc.).
The research approach in this paper is a case study. Empirical data were obtained by the author’s personal insight into the
implementation of border monitoring and through a content analysis of publicly available documents.
Les résultats indiquent que le commissariat aux comptes dans ces deux universités est appréhendé sous l’angle d’une
approche globale intégrant à la fois l’approche disciplinaire partenariale et l’approche cognitive.
The first part of the paper summarise different models of accountability of public administration.
La majorité de nos l’interlocuteur perçoivent le commissariat aux compte comme un mécanisme cognitif contribuant à l’apprentissage organisationnel et à l’amélioration du contrôle interne notamment dans le cadre des nouvelles responsabilités accordées
aux universités (particulièrement la gestion de la masse salariale) et les nouveaux risques issus de ces responsabilités.
The second part briefly sketches the accountability mechanisms in Croatia with regard state administration, and with emphasis
on the Ministry of the Interior. The third part presents the Croatian migration policy and an outline of the border monitoring
activities and the achieved results. The final part of the paper offers a general conclusion on the relation between civil sector
monitoring and accountability for performance of the state administration.
INNOVATION IN THE PUBLIC SECTOR: BRUNEI DARUSSALAM [DRAFT]
Hajah Sainah Binti Haji Saim, Senior Lecturer, Institute of Policy Studies,
L’IMPACT DE LA MISE EN PLACE DU COMMISSARIAT AUX COMPTES SUR LA
LATITUDE MANAGÉRIALE DES DIRIGEANTS DES UNIVERSITÉS
Hamza EL KADDOURI, Orléans Tours, Domaine universitaire, France
Mots clés :Commissariat aux comptes, gouvernance, disciplinaire, cognitive et université
Le rôle de l’Etat a connu une évolution majeure dans l’histoire contemporaine ; Selon Delley (1997), à l’Etat libéral ont succédé
ensuite un Etat interventionniste puis aujourd’hui un Etat Néo libéral. Selon cette auteur l’Etat Néo libéral se caractérise par
l’introduction de mécanismes de marché, d’une logique d’efficacité et de l’obligation de rendre des comptes dans tous les
domaines de la société, y compris dans la sphère des services publics et par conséquent dans l’université.
Selon le rapport du député Apparu, B. (2007) l’université française est en train de vivre une crise sur plusieurs niveaux :
Une crise d’orientation des étudiants, une crise d’insertion professionnelle des diplômés, une crise des moyens et une crise
d’adaptation à la concurrence du marché international de l’enseignement et de la recherche.
Pour faire face à cette situation, des pressions normatives ont été exercées sur l’université ; le gouvernement français a proposé et voté la loi n° 2007-1199 du 10 août 2007 relative aux libertés et responsabilités des universités (LRU). Cette nouvelle
loi a pour objectif, d’après ses porteurs, l’amélioration de la gouvernance des universités (notamment par la simplification du
processus décisionnel et renforcement du pouvoir des présidents) et l’accord de plus d’autonomie dans la gestion budgétaire
et de biens immobiliers.
Universiti Brunei Darussalam, Jalan Tungku Link, Gadong BE1410, BRUNEI DARUSSALAM
Communities around the world are facing an increasing number of problems for which traditional government action is failing.
This has led to a growing realisation that the public sector must increase its capacity to innovate. Innovation is a dynamic
and iterative process, which includes the generation, acceptance, and implementation of a new idea or approach to an
issue. Innovation in the public sector can be described as a learning process in which governments attempt to meet specific
societal challenges such as fight against transboundary crime, rising sea levels, or fight against poverty. It is the creation and
implementation of new processes, products, services and methods of delivery, which improve the efficiency, effectiveness,
productivity or quality of outcomes of the public organisations.
Traditional government like Brunei provides public goods and services at a minimal or no cost. Among the free public services
are healthcare and education. Despite the ‘free’-ness, there has been concerns on the ‘waste’ or ‘wastage’ of resources and
greater emphasis is placed on efficiency, effectiveness, productivity, quality and equality in the provision of the services. This
emphasis requires new ways of looking at things. The idea of innovation in the public sector has been overshadowed by or
treated as part of public sector reforms. It is time that these ideas be highlighted and made significant.
According to Mulgan and Albury (2003), whilst a susbstantial body of research has emerged in the past four decades on
innovation in the private sector, a significant knowledge gap exists with regard to innovation within the public sector, where
quality research on the subject has been rather limited.
En parallèle à ce renforcement de l’autonomie des universités cette loi a mis en place un nouveau mécanisme de gouvernance
en stipulant que « les comptes de l’université font l’objet d’une certification annuelle par un commissaire aux comptes » (alinéa
4 du nouvel article 712-9 du code de l’éducation).
The aim of this paper is therefore to provide an overview of innovation in relation to the public sector, drawing on UK, European
and American empirical and theoretical reports (1999 to current). In addition, it presents illustrative examples of public sector
innovation, international with a national or local focus.
Théoriquement, le commissariat aux comptes a été souvent associé au courant disciplinaire de la gouvernance (Smith (1776),
Berle et Means (1932), Jensen et Meckling (1976), Fama et Jensen (1983), Charreaux, Couret, Joffre et al.,(1987), Charreaux
(1997)), axé sur la répartition de la valeur. Parallèlement à cette approche, on note l’émergence dans la littérature d’un courant
basé sur les approches cognitives considérant l’audit légal comme une source d’apprentissage et de création de la valeur pour
l’organisation (Morse (1981), Joras (1997), Charreaux et Wirtz (2006), Carassus (2008)).
The paper is divided into two parts. Part I discusses the rationale behind innovation in the public sector; provides understanding
on the key concepts and trends in public sector innovation; explores the mechanisms being used and initiatives undertaken
to foster innovation in the public sector; examines the main barriers to innovation and derives lessons from the private sector
innovation. Part II explores the mechanisms used and initiatives undertaken by the Brunei public sector, examining barriers to
innovation and providing suggestions from lessons learnt from the private sector innovation and other countries.
Dans cette recherche nous proposons d’étudier le rôle de l’audit légal dans la gouvernance des universités françaises, plus
concrètement nous voulons analyser l’impact de la mise en place de l’audit légal sur la latitude managériale des dirigeants des
universités.
Keywords: public sector innovation, public sector, Brunei Darussalam
CULTURAL DIMENSION AND SPECIFICITY OF GOOD GOVERNANCE
Pour apporter des éléments de réponses nous avons suivi une démarche qualitative exploratoire basée sur deux cas d’universités, seize entretiens (pour l’instant) semi-directifs ont été réalisés auprès des responsables universitaires (un président de
l’université, deux directeurs généraux des services, un responsable d’organisation et des moyens, une responsable du contrôle
interne, deux agents comptable, un directeur financier, un responsable de cellule d’aide au pilotage, trois membres externes
du conseil d’administration, un vice-président du CEVU et une Vice-présidente du Conseil Scientifique), un commissaire aux
comptes, un magistrat de la chambre régionale des comptes.
Le principal critère de choix de nos interlocuteurs est leur lien direct avec le processus décisionnel au sein de cette université.
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Witold Mikulowski, Poland
The paper aims to open discussion and to encourage a new interdisciplinary field of comparative research on cultural dimension of public governance in different public administration systems and on prospects of their future development.
Starting from nineties, the new concept of public governance appeared in the context of development strategies for developing
countries. Progressively it became fashionable, commonly used and discussed on international level including our scientific
milieu. Up to now, the papers on this issue, presented during our conferences were showing the efforts to develop national
public administration systems conform to the standards of universal model of modern, good and democratic governance.
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More than 50 years ago, at the beginning of development of newly independent postcolonial states in Africa and 40 years later,
after political transition in post-communist countries, we started to promote the concept of modern, efficient and democratic
state. More recently we started to use a new concept, putting accent on more interactive and participative mode of exercise
of government functions calling it “good -” and/or “democratic governance”. This concept was based on ideas and standards
of well-developed democratic societies, their systems of values and corresponding attitudes and behaviours, as well as on
cultural codes of their interpretation. From this time, everything which is not corresponding to these standards, is generally
considered as a consequence of underdevelopment of political and public administration systems. In many cases and in some
extent it is true. Actually, to identify and to recommend what need to be changed in view to improve present public governance
system seems relatively easy. But, too define good strategies, to formulate and adopt corresponding policies, programs
and action plans for their implementation and to evaluate and mobilise necessary resources, is much more complicated.
It requires a careful analyses and interpretation of different important and interdependent factors explaining the nature and
origins of weaknesses, failures and pathologies of present governance system, which should be overcome in view to ensure
its improvement and further development. To implement these strategies and to obtain expected results, using recommended
forms and procedures of good governance successfully practiced in well-developed western democracies proved to be even
more difficult. In the majority of countries, despite declarations of the good will and apparent involvement of governments
concerned, despite also a big external financial support and technical assistance from abroad, the results obtained up to now,
were often turned deceiving.
In consequence, we can conclude, that the problem lies not in formal acceptance or rejection of these set of basic values,
which we commonly recognised and consider as fundamental for our community of modern and democratic nations. It
concerns more the understanding of these general concepts, when applied in concrete society, in particular political and
socio-economic situation, in the context of cultural values shared by the different actors of governance system and influencing
their way of thinking and behaviour. The question is how these values affect and determine their interactions and attitudes in
decision making and policy implementation processes.
It seems obvious that, from this point of view, the situation is varying in different countries and depends of several factors. The
most important are: historical evolution of their political identity and autonomy, the level of their social and economic development,
their physical environment and natural resources, their international environment and finally, their social and cultural specificity and
complexity. All this factors are determining the priorities, constraints and capacity to conceive and implement a sustainable model
of good governance, well adapted to the country needs and limits of its capacity to implement it successfully.
In my opinion, the cultural specificity, which constitutes one of the most decisive factor, was not, up to now, sufficiently taken
into account in our research and reflexion concerning different public governance systems. This factor strongly affects social
relations inside of government structures as well as with its national and international environment. This is particularly important
in developing and transitional countries, where, despite apparent similarity of common colonial or communist past, the role of
this factor is more or less complex and different in each country.
To identify and to explain the role of cultural factor of public governance in particular country, we should analyse the origins,
specificity and role of the culture of the society concerned. The situation is varying from existence of one strongly dominating
culture shared by the majority of actors of the governance system concerned, to a very complex social systems where many
different cultures are coexisting and competing at the country level or in its different regions where they can have more or less
strong position. Only on this bases, we can perceive and analyse the influence exerted by this factor on the way of thinking,
attitudes, behaviours and decisions making processes of different partners in governance activities. We should also distinguish,
different contexts in which this factor can affect behaviour and decisions and their principal actors of this activity. The first one
concerns internal activities and relations in different structures of governmental system. The second concerns its impact on the
relations between public institutions and their stakeholders, and more particularly, formal and informal relations between representatives of public authorities from one side and their individual clients from another side. The third one concerns relations of
public authorities with private and third sector institutions (traditional authorities, social organisations, political parties, religious
communities). We should not forget also the question of mutual understanding and effective collaboration between national
and foreign experts with different cultural background, executing together administrative and governance reforms projects.
We should also keep in mind that cultural values have their hierarchical structure. Their hierarchy is changing in different social,
economic and political context and is often different for different actors of governance processes.
In my paper, I will refer to my own experience of international expert in this domain, in different developing and transitional
countries in Africa, Central and Eastern Europe, Central and South Asia, in which cultural factors were strongly affecting each
type of governance relations and their outcomes. Submitting this problem for our very heterogeneous audience representing
all continents, I hope to open a large discussions in view to confront different points of view of participants on this important
issue. Actually, this subject is essentially interdisciplinary and requires participation and contributions of practitioners as well as
researches of different scientific profiles. My intention was to propose it also for other regional groups, which could bring and
confront the results of their findings to the interregional meeting of IIAS congress.
70
PUBLIC ADMINISTRATION EVOLVES THROUGH SELF-REFLECTION – NOT
BORROWED IDENTITIES: THE CASE OF GREECE
Panagiotis Karkatsoulis, Efi Stefopoulou
The polymorphic crisis that started in 2008 has poised a central question to every country enduring it: Which administration,
what kind of State and what quality of institutions are apt to respond to a new economy? In other words, what kind of institutions do we need, so that to strengthen the societal capacity to avoid the repetition of such disastrous phenomena. The search
finds us far from ready. The first almost spontaneous reaction is that if the proposed reforms would have been implemented
there would have been no crisis. But such a cyclic argument is not enough, since it underestimates the social character of the
reforms and perceives them as technocratic endeavors cut off their context.
We estimate that there is a much deeper problem in regard to our own way of thinking about the issue and the toolkit we use to
deal with it. Have the very means of our thought grown too old and we need new ones, which are, at first glance, much more
complicate, but would prove to be much simpler in the end?
In this study, these considerations are tackled with a focus on the case of Greece. The Greek economy and public administration have been at the center of interest of states, experts, journalists etc. All possible reform idea has been proposed and some
of them tested with no prior analysis or applicability test. Most of them have already failed, but both local and international
decision makers are not willing to learn by their mistakes. So, we are facing a situation where a monetaristic, procroustian
policy is being implemented, while theorists are retrieving from the old dust theories about the wild capitalism, along with any
sort of conspiracy theory. This way they create a mostly welcome populist comfort which does not offer any solution. It is
equally worrying, of course, the fact that the administrative theory and practice were in no way able to contribute to the exit
from the crisis. The economic Armageddon dragged and overcome the logic of gradual reforms, of private-public partnerships,
consultation, social cohesion and the rest of the new public management imperatives learnt during the previous 30 years.
After four (4) years of experimentation Greece is still located on the edge of the cliff having lost 25% of GDP, with 60% youth
unemployment and broken public services. It is a country that presents after 3 rescue programs and several millions injected
to it, a situation that is no better than it was in the beginning of the crisis. That’s why we must review the policy models used.
This applies to the design and implementation of both national and international public policies. This is, because failure lies not
only with national governments, but the international community as well which not only proved that has had no plan for the
restoration of public administration but marched to the opposite direction of what should have been done.
In this study we focus on the reform of public administration in order to highlight the dual dimension of the problem mentioned
above: a) Why in Greece reforms that could support a different model of economic and social development never took place
and are still not planned and b) Whatever is planned to happen from now on is doomed to fail if it is based on the current
epistemological and methodological paradigm of public administration reform.
To illustrate the above, the study will show in its first part the inadequacy of existing epistemological and methodological tools
of the administrative science and practice to deal with the issue. In the second part, we will show through the case study the
diagnosis, the wrong treatment and the (systemic) failure to implement reforms in Greece. Furthermore, in the third part, we will
mention the necessary methodological innovations that must be agreed upon, in order to be able to overcome the devastating
«one size fits all» way of thinking, and be able to reach, in a globalized social order, different legal and administrative systems,
with differentiated understanding and management policies.
The study is based both on desk research as well as on data collected by 16 mapping teams during the functional review of
the Greek Public Administration, under the guidance and supervision of the authors. For the collection of the data there were
used structured questionnaires, interviews and there have been organized five focus groups. The data collected for public
administration organisations, refers to the following fields: Strategic planning & programming/ goal setting/ efficiency, human
resource management, structures & infra – structure, financial operation and programming, decision making & regulatory
production. The data collection methodology had a twofold objective: a) to collect information referring to organizational
dimensions of public bodies in the Greek Administration and b) to reflect perceptions and attitudes of the people working within
the administration.
Keywords: Reform, greece, public administration, crisis, governance
71
THE ETHICAL DIMENSION IN THE NEW PUBLIC MANAGEMENT: REVISITING THE
THEORY OF ACCOUNTABILITY, THE CASE OF PUBLIC FINANCES IN MOROCCO.
Mohamed AKHLAFFOU, Ecole Nationale de Commerce et de Gestion, Université Ibn Zohr, Agadir and Youssef EL
WAZANI, Ecole Nationale de Commerce et de Gestion, Université Ibn Zohr, Agadir.
In this paper, we focus on the positioning of the ethical theory of accountability and relevance of the new public management in
the integration of the ethical dimension in the management of public organizations and non-profit organizations. The objective
is to show how the NPM and the theory of accountability incorporate the ethical dimension, and in what extent these two
theories consider ethics in the construction process of public action, the sense and nonsense in public management and its
relationship with the position of ethics in the management of public organizations.This through a case study on the ethical
dimension in the management of public finances in Morocco, proposing recommendations to improve accountability in public
finances, to make it more transparent and ethical.
Keywords: Ethics, accountability, new public management, sense, public finance
TRADITIONAL POLITICAL AND ADMINISTRATIVE CONTROLS AND THE
UNREALISTIC SYSTEM OF ACCOUNTABILITY
Ammar BOUHOUCHE, University of Algiers
Accountability is a nice word and everybody pays a lip service to this notion of ethical method work in any public institution. Its
lovely meaning comes from the fact that it conveys the image of transparency, democracy and accountability to citizens and
trustworthiness.
Extra session on contributions
from the Region
Session supplémentaire
sur des contributions de la Région
Furthermore, accountability is appreciated by public authorities and elected officials who claim that office holders will be neutral
and public services will be depoliticized. But in fact, reliance on the myth of separated politics from running public administration, is merely a slogan, used to achieve political results in any competition for any appointment in any public institution.
In reality, accountability is easy to define. It means that public services and their workers are answerable to their citizens directly
and indirectly for the use of their powers, authority and resources. Very often, the term of accountability is used interchangeably
with the meaning of “Good Governance”, transparency, equity, democracy, efficiency, responsiveness and integrity. ( )
It is a fact that, such slogans are available accurately in dictionaries and on papers only. In theory, there are in every country
institutions, legitimate authorities and universal suffrage. But, the functions of such institutions and executed policies differ from
one country to another. Annual reports of TRANSPARENCY INTERNATIONAL, show that the range of scales of corruption and
misuse of power in public institutions vary from one nation to another. Furthermore, the civil wars are raging, at the moment,
in Somalia, Iraq, Afghanistan, South of Sudan and Libya because of the lack of consensus on policies, absence of liberty and
struggle for surviving and overcoming poverty and misery.
For such reasons, the author of this paper, attempts to examine the major issues which are considered to be a handicap
for pursuing and executing policies, sharing authority and living together in one nation, in a peaceful manner, regardless of
ethnicity, discrimination and ideology.
The questions, needed to be raised here as problematic for this study focus on the following matters:
1. What is meant by accountability in the past and the present or the traditional techniques and new ones?
2. What are the mechanisms of control?
3. What the citizens can do about the problems of power rotation and sharing political authority?
4. How to enhance the real accountability in the era of change and globalization?
In short, accountability in our era of change has no meaning if citizens do not accept change and adaptability to the new era
of globalization and transparency. It is their responsibility to realize that the revolt in streets to change despots does not settle
their economic problem.
What is needed mostly is to dialogue and create consensus on policies and establish effective mechanisms for the execution
of state laws.
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73
UNE RÉFLEXION NON EXHAUSTIVE SUR « LA RESPONSABILITÉ SOCIÉTALE
DES COLLECTIVITÉS TERRITORIALES: LA REDDITION DES COMPTES DANS LES
COMMUNES MAROCAINES REVISITÉE PAR LA RSO»
QUEL RÔLE DE L’ETAT ACTIONNAIRE DANS LE NOUVEAU MODÈLE ÉCONOMIQUE
DES EEP ? CONTRIBUTION À L’ÉTUDE SUR LA TRANSFORMATION DES
ÉTABLISSEMENTS PUBLICS EN SOCIÉTÉS ANONYMES
MBARKI Mohammed Amine et ELHAMDAOUI Hassane, Université Abdelmalek Essaâdi
Centre des Etudes Doctorales « Economie et Gestion », Tanger, Maroc
M. KABBAJ MEHDI, Université Hassan 1er de SETTAT, Maroc
Depuis la conférence de Rio de 1992, les collectivités territoriales sont appelées à adopter, à l’échelle de leur territoire, leur
agenda 21 pour contribuer à la diffusion des principes du développement durable et à la compétitivité des acteurs qui y
opèrent.
Or, l’une des conditions de réussite de l’Agenda 21 d’une collectivité territoriale soucieuse de l’encadrement des politiques
socialement et écologiquement responsables sur son territoire, passe au préalable, par le questionnement de l’interne de
ladite collectivité, du fonctionnement de ses entités et par la manière de faire dialoguer l’interne et l’externe tout en s’inscrivant
dans une démarche de responsabilité sociétale de l’organisation (RSO) orientée Développement Durable (DD).
Au Maroc, avec la Constitution de 2011, les concepts DD et RSO (déclinaison du DD au niveau de l’organisation), ont acquis
une valeur constitutionnelle. Toutes les organisations, dont les collectivités territoriales font partie, doivent s’y adapter. La
responsabilité sociétale des collectivités territoriales est l’application pragmatique du DD au niveau de ces collectivités. Le
thème de RSO est l’un des thèmes phares de la recherche en sciences de gestion.
Cependant, la RSO est peu évoquée au niveau des organisations publiques en comparaison avec les organisations privées
et pourtant leur responsabilité en la matière n’est pas moindre.
En matière social et environnemental, les règles, les devoirs et les contraintes, doivent être appliqués sans discrimination
entre organisation publique et privée. La RSO, «une démarche sociétale, ne peut être à deux vitesses : l’une privée, l’autre
publique.»
Les difficultés financières de plusieurs entreprises ainsi que les incertitudes relatives au sort des privatisations de certaines
autres, mettent en évidence, d’une part, que les entreprises publiques sont soumises à des contraintes particulières et, d’autre
part, que le débat sur l’opportunité de maintenir des entreprises publiques dans le secteur concurrentiel est loin d’être clos.
Ces événements montrent que la question de l’efficacité des entreprises publiques reste posée, notamment dans le contexte
de l’économie marocaine au sein de laquelle l’État joue un rôle prépondérant, de par le contrôle direct ou indirect qu’il exerce
sur les entreprises publiques.
Au sein de ces entreprises, l’Etat exerce un rôle d’actionnaire et, en tant que tel, il doit veiller à la santé financière et au
développement des entreprises comme à la juste rémunération des capitaux investis par l’Etat. Toutefois, la situation des EEP
au Maroc reste inquiétante « seuls 10 EEP réalisent plus de 80% du chiffre d’affaire global(1)» ce qui nous poussent à nous
interroger directement non seulement sur la capacité de l’Etat à exercer sa mission d’actionnaire mais aussi sur l’efficacité de
l’ensemble des règles de gouvernance régissant les entreprises publiques.
La présente communication étale un ensemble d’interrogations posées au sein de la problématique de la gouvernance
des institutions publiques et plus particulièrement sur la gouvernance des établissements et entreprises publiques. Cette
contribution s’attachera particulièrement au mode de gouvernance des établissements et entreprises publiques marocaines,
notamment en portant l’interrogation sur le rôle de l‘Etat actionnaire.
Mots clés : Entreprise publique- gouvernance des entreprises- Etat actionnaire.
Avec l’ISO 26000, publiée en 2010, un consensus sur le concept RSO a eu lieu. La norme ISO 26000 encadre aussi bien les
pratiques de la RSO que la communication, à diffuser, sur ses pratiques (reporting sociétal) ce qui génère les échanges avec
les parties prenantes.
Le reporting sociétal est un outil de dialogue entre l’organisation et la Société. Il doit permettre à la Commune concernée de
rendre compte de l’impact de ses activités et ses décisions sur la Société et l’environnement auprès des parties prenantes.
Dans ce sens, les élus qui « n’ont de comptes à rendre qu’à leurs électeurs « doivent, non seulement, répondre à leurs électeurs mais aussi être comptables de leurs décisions et activités envers eux et la société en général. In fine, la responsabilité
sociétale renvoie au fait d’être comptable envers ses parties prenantes.
Le nouvel « outil » d’appréhension de la RSO selon l’ISO 26000, le reporting sociétal et son articulation avec le plan communal
de développement (PCD) dans les communes urbaines constituent l’originalité de ce travail de recherche.
Illustrative sans se prétendre exhaustive, cette contribution, exploratoire, interprétative et qualitative, tente d’interroger la problématique suivante : comment les membres du conseil d’une Commune Urbaine qui s’engage, envers ses parties prenantes,
« dans une perspective du développement durable et sur la base d’une démarche participative» (article 36 Charte communale
marocaine modifiée 2009) perçoivent et s’approprient du reporting sociétal ?
En quoi la norme ISO 26000 – à travers la question centrale Gouvernance– contribue-t-elle à la concrétisation du reporting
sociétal et à son articulation avec le PCD au niveau de ladite commune?
Mots clés : RSO, ISO 26000, collectivités territoriale, gouvernance, reporting sociétal, PCD
(1) Données relatives à l’exercice 2011 tel que déclaré par la direction des établissements publics et de la privatisation/Ministère de l’économie et des finances.
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