juggling actors in the reform of the Cambodian administration

189 Pages·2010·3.54 MB·English

Ruth Tigges
Professionals and governance: juggling actors
in the reform of the Cambodian administration
Dissertation submitted at the
Department for Southeast Asian Studies II, Faculty of Philosophy
University of Passau
January 2009
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ForStellaMaite
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LISTOFFIGURESANDTABLES 5
LISTOFANNEXES 6
LISTOFABBREVIATIONS 7
ABSTRACT 11
ACKNOWLEDGMENTS 12
1.INTRODUCTION 14
1.1.THEORETICALFRAMEWORK........................................................................................................15
1.2INSTRUMENTSANDSELECTIONCRITERIA....................................................................................23
2.PROFESSIONALSANDSTATE-FORMATION:CONTINUITYANDCHANGE 24
2.1.PROFESSIONALSDURINGTHEANGKORPERIOD.........................................................................24
2.2.THEEARLYMODERNIZERS:PARAPROFESSIONALSANDNATIONBUILDING..............................27
2.3.PROFESSIONALSANDLEFTISTMOVEMENTS...............................................................................29
2.4.THEFIGURATIONOFSTRATEGICGROUPSAFTERTHEKHMERROUGES..................................32
2.5.COOPTATIONOFPROFESSIONALS?FROMBUREAUCRATICPOLITYTOBUREAUCRATIC
CAPITALISM..........................................................................................................................................35
2.6.CONCLUSION.................................................................................................................................38
3.PROFESSIONALSTODAY:ASTRATEGICGROUP? 39
3.1.EDUCATIONALBACKGROUND......................................................................................................39
3.2.OCCUPATIONALFIELDS:WHEREARETHEYNOW?....................................................................43
3.3.CASESTUDIES................................................................................................................................45
3.3.1CASESTUDIESOFPROFESSIONALSWORKINGASCIVILSERVANTS...............................................45
3.3.2.CASESTUDIESOFPROFESSIONALSWORKINGFORDONORORGANIZATIONS...............................47
3.3.3.CASESTUDYOFAPROFESSIONALINANONGOVERNMENTALORGANIZATION(NGO).............50
3.3.4ACOMPARATIVECASESTUDYOFAPROFESSIONALEMPLOYEDINTHEPRIVATESECTOR...........51
3.3.5.ANALYSIS....................................................................................................................................52
3.4PATTERNSOFSELF-ORGANIZATION:PROFESSIONALORGANIZATIONS.....................................53
3.5.COGNITIVESTRUCTURESANDLIFEWORLDS:HOWCAMBODIANPROFESSIONALSTHINK......55
3.5.1SIMILARITIESINLIFESTYLESANDCOGNITION..............................................................................56
3.5.2DIFFERENCESRESULTINGFROMVERTICALINTEGRATION...........................................................59
3.6.BEHAVIORANDPRACTICESWITHINTHECAMBODIANBUREAUCRACY....................................64
3.7.LACKOFCOMMONSTRATEGY?...................................................................................................68
3.8.PROFESSIONALS:ACAMBODIANSTRATEGICGROUP?...............................................................70
3.9PROFESSIONALS:AGLOBALSTRATEGICGROUP?........................................................................71
3.10CONCLUSION................................................................................................................................74
4.ADMINISTRATIVEREFORMINPOST1993CAMBODIA:IMPLICATIONSAND
INSTITUTIONALSETTING 76
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4.1.INSTITUTIONALSETTINGOFDEVELOPMENTCOOPERATIONFORADMINISTRATIVEREFORMS
ANDITSACTORS...................................................................................................................................76
4.1.1THEPOLITICALNEGOTIATIONLEVEL:CDCF(UNTIL2007CG)...................................................78
4.1.2THESEMI-POLITICAL,TECHNICALLEVEL:GOVERNMENTDONORCOOPERATIONCOMMITTEE
(GDCC).................................................................................................................................................79
4.1.3THETECHNICALLEVEL:TECHNICALWORKINGGROUP(TWG)..................................................80
4.2.THECOUNCILOFMINISTERSANDITSOFFICE...........................................................................81
4.3.HISTORICCONTEXTUALIZATIONOFPUBLICADMINISTRATIVEREFORM................................83
4.3.1THEPRIORITYMISSIONGROUP(PMG)........................................................................................90
4.3.2THEMERITBASEDPAYINCENTIVE(MBPI)SCHEME..................................................................91
4.4.POLITICALTENSIONS....................................................................................................................92
4.4.1POLITICALCONFRONTATIONATTHEGOVERNMENT-DONORCOORDINATIONCOMMITTEE
(GDCC)LEVEL......................................................................................................................................93
4.4.2POLITICALCONFRONTATIONATTHECDCFLEVEL......................................................................96
4.5.CONCLUSION...............................................................................................................................101
5.PROFESSIONALSANDADMINISTRATIVEREFORM:ACONTESTEDNEGOTIATION
PROCESS 103
5.1.THEPOLITICALTENSIONSANDTHEIRBASISWITHINTHETECHNICALWORKINGGROUPON
PUBLICADMINISTRATION.................................................................................................................103
5.2.THECONTESTEDISSUES:JOINTMONITORINGINDICATORSANDTHEIRIMPLICATIONS.......105
5.3.THEJOINTMONITORINGINDICATOR’SRELATIONSHIPANDTHEIRDYNAMICSOVERTIME.106
5.4.ANALYSISOFTHETECHNICALWORKINGGROUP(TWG)ONPUBLICADMINISTRATIVE
REFORM(PAR)MEETINGS................................................................................................................109
5.4.1JOINTMONITORINGINDICATOR1:IMPLEMENTTHEAPPROVED"JOINTGOVERNMENT-DONOR
STRATEGY”FORPHASINGOUTSALARYSUPPLEMENTATIONPRACTICESINCAMBODIA..................110
5.4.2JOINTMONITORINGINDICATOR2:IMPROVEPAYANDEMPLOYMENTCONDITIONSINTHECIVIL
SERVICE...............................................................................................................................................116
5.4.3JOINTMONITORINGINDICATOR3AND4....................................................................................129
5.5.CONSENSUSFINDING2008..........................................................................................................132
5.6CONCLUSION................................................................................................................................134
6.CONCLUSION 137
BIBLIOGRAPHY 141
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List of Figures and Tables
FIG.1:NUMBEROFCAMBODIANSTUDENTSSTUDYINGOUTSIDECAMBODIA 41
TABLE1:AGEDISTRIBUTIONOFCAMBODIAGRADUATES 43
FIG.2:PROFESSIONALSANDTHEIROCCUPATIONALSPHERES 42
FIG.3:THETHREEINTERFACESFORPOLICYNEGOTIATIONS 77
FIG.4:CHRONOLOGYOFKEYDOCUMENTSFORADMINISTRATIVEREFORM 85
FIG.5THEKEYCOMPONENTSOFTHESTRATEGYTORATIONALIZETHECIVILSERVICE
86
TABLE2:CHRONOLOGYOFTHEMEETINGSOFTHETECHNICALWORKINGGROUPON
PUBLICADMINISTRATIVEREFORM 108
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List of Annexes
ANNEX1:MAPOFCAMBODIA 148
ANNEX2:INTERVIEWQUESTIONNAIRE 149
ANNEXE3:TRANSITIONOFPOLITICAL,LEGALANDECONOMICSYSTEMSIN
CAMBODIA 151
ANNEX4:SHORTBIOGRAPHIESOFSELECTEDPROFESSIONALS 155
ANNEX5:STATEMENTOFTHEGENERALTHEDEMOCRATICNATIONALUNITED
MOVEMENTJANUARY1999 164
ANNEX6:CAMBODIANTYCOONSINTHESENATEANDTHEIRACTIVITIES 167
ANNEX7:“IT’SAFAMILYAFFAIR” 168
ANNEX8:SINCERECONGRATULATIONSTOHISEXCELLENCYSOKAN,DEPUTYPRIME
MINISTER,MINISTERINCHARGEOFTHEOFFICEOFCOUNCILOFMINISTERSONTHE
OCCASIONOFTHECEREMONYTOCONFERHISHONORARYDOCTORALDEGREEOF
PUBLICPOLICYANDMANAGEMENTCHAMROEUNUNIVERSITYOF
POLYTECHNOLOGY(CUP)
DELIVEREDBYH.EOMYENTIENG 169
ANNEX9:KEYPROFESSIONALFIGURESOFTHE“RUSSIANGENERATION”:DR
MONIROTHANDDR.CHUONNARON 172
ANNEX10:NUMBEROFCENTRALANDPROVINCIALSERVANTSBYMINISTRY 177
ANNEX11:STRUCTUREOFTHEROYALGOVERNMENTOFCAMBODIA 181
ANNEX12:LISTOFTHEJOINTTECHNICALWORKINGGROUPSINCAMBODIA 179
ANNEX13:ACTIONPLANOFTHETECHNICALWORKINGGROUPONPUBLIC
ADMINISTRATIVEREFORM2007 180
ANNEXE14:THEOFFICEOFTHECOUNCILOFMINISTERS(OCOM) 182
ANNEX15:LISTOFINTERVIEWEES 183
ANNEX16:THERECTANGULARSTRATEGY 185
ANNEX17:TIMELINEOFLYCÉESISOWATH'SHISTORY186
ANNEX18:KEYCAMBODIANUNIVERSITIES 188
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List of abbreviations
AAA AustralianAlumni Association
AFEC Alliancefor Freedom of ExpressioninCambodia
ASCOJA AsianCouncil ofJapanAlumni
ADA Appui deDévelopement Autonome
Ad Hoc CambodianHumanRights andDevelopment Association
APSARA Authority in charge of the Management of Angkor and the
RegionofSiem Reap
BSAF BaseSalaryand Allowances Framework
CAR Council forAdministrativeReform
CCHR CambodianCenterforHumanRights
CDC Council fortheDevelopment ofCambodia
CDCF CambodiaDevelopment CooperationForum
CDRI CambodiaDevelopment Resource Institute
CG ConsultativeGroup
CGDK CoalitionGovernment ofDemocratic Kampuchea
CIB Cambodian Investment Board
CICP Cambodian Institutefor CooperationandPeace
CIDA Canadian International Development Agency
CMAA CambodianMineActionAuthority
COM Council ofMinisters
CPIA CountryPolicyand Institutional Assessment (WorldBank)
CPK CommunistPartyofKampuchea
CPP Cambodian’s People’s Party
CRDB CambodianRehabilitationandDevelopment Board
DAAD Deutscher Akademischer Austauschdienst (German Academic
ExchangeService)
DANIDA Danish International Development Agency
D&D DeconcentrationandDecentralization
GDR GermanDemocraticRepublic
DFID UnitedKingdom Department for International Development
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EC EuropeanCommission
ECSP EuropeanCommissionSupport ElectionProcess
EIC Economic InstituteofCambodia
EPSCB EconomicandPublicSectorCapacityBuilding
EDECC European Delegation of the European Commission to
Cambodia
FDI ForeignDirect Investment
FLE Facultyof LawandEconomics
FUNCINPEC Front Uni Nationale pour un Cambodge Indépendant, Neutre,
Pacifiqueet Coopératif
GDCC Government DonorCooperationCommittee
GRUNK Royal Government of National Union of Kampuchea
(Gouvernement Royal d'UnionNationaleduKampuchéa)
GTZ Gesellschaft für Technische Zusammenarbeit (German
Technical CooperationAgency)
HRM HumanResourceManagement
HRMIS HumanResourceManagement InformationSystem
HRD HumanResourceDevelopment
ICT InformationandCommunicationTechnology
IDF Institutional Development Fund
IDP International Development Program
ITP International Team Project
IMF International MonetaryFund
JAC JapaneseAlumni ofCambodia
JICA Japanese International CooperationAgency
KPNLF KhmerPeopleNational LiberationFront
KPMG KlynveldPeat Marwick Goerdeler
KPRP Kampuchean(Khmer)People's RevolutionaryParty
KYA KhmerYouthAssociation
MBPI Merit BasedPayIncentive
MDG Millennium Development Goals
MTWF Medium Term WageBill Framework
NGO NonGovernmental Organization
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NIDA National InformationCommunications Technology
Development Authority
NPAR National Program for AdministrativeReform
NSDP National StrategicDevelopment Plan
NUM National UniversityofManagement
ODA Official Development Assistance
OECD OrganizationforEconomicCooperationandDevelopment
OBSES Economic,Social andCultural ObservationUnit
OCOM OfficeoftheCouncil of Ministers
PAR PublicAdministrativeReform
PFM PublicFinancial Management
PMG PriorityMissionGroup
PPA Paris PeaceAccords
PRK People’s RepublicofKampuchea
PWHC PriceWaterhouseCoopers
RSA Royal School for Administration
RSJP RoyalSchoolforJudicialProfessions
RGC Royal Government ofCambodia
RUPP Royal UniversityofPhnom Penh
RULE Royal Universityfor LawandEconomics
SAO Special OperatingAgencies
SEILA Aidmobilizationandcoordinationframeworktosupport
Cambodia’s decentralizationanddeconcentrationreforms. It
was launchedin1996 as ajoint UNDP/government experiment
inpovertyalleviationinrural areas. Seila means ‘foundation
stone’inKhmerSanskrit
SNEC SupremeNational EconomicCouncil
SPSS StrategyonPhasingout SalarySupplementation
SSP SalarySupplementationPractices
SoC StateofCambodia
TWG Technical WorkingGroup
UNDP UnitedNations Development Program
UNESCO United Nations Educational, Scientific and Cultural
Organization
UNOHCHR United Nations Office of the High Commissioner for Human
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Rights
UNTAC UnitedNations Transitional AuthorityinCambodia
UNV UnitedNations Volunteers
UNWCC UnitedNations WarCrimes Court
USA UnitedStates ofAmerica
WPK Worker’s PartyofKampuchea
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