Table Of ContentThe Management ofChange in Government
INSTITUTE OF SOCIAL STUDIES
SERIES ON THE DEVELOPMENT
OF SOCIETIES
VOLUME I
INTERNATIONAAL INSTITUUT
VOOR SOCIALE STUDIEN -'S GRAVENHAGE
THE MANAGEMENT OF CHANGE
IN GOVERNMENT
Edited by
ARNE F. LEEMANS
MARTINUS NIJHOFF / THE HAGUE / 1976
© 1976byMartinusNijhoff, TheHague, Netherlands
Softcoverreprintofthehardcover/stEdition /976
Allrightsreserved,includingtherightto translateorto
reproducethisbookorpartsthereofin anyform
ISBN-I3: 978-90-247-1817-7 e-ISBN-13: 978-94-010-1383-3
DOl: 10.1007/978-94-010-1383-3
ACKNOWLEDGEMENTS
Many authors have contributed their theoretical reflections or practical ex
periences to this volume. I am very grateful for their willingness to make
these substantive contributions, to sometimes revise them in order to bring
them into line with the general set-up ofthe book, and even to update them
whenpublicationwasdelayed.
I wish to thank my colleagues at the Institute ofPublic Administration,
University ofAmsterdam, and other friends for their readiness to act as a
soundingboardforcertainnotionswhichIhaveelaboratedin'AConceptual
Framework'. Theircritical comments atvarious stages ofthe work provided
me with·useful and stimulatingideas. Particular mention should be made of
Bob Bosschert, 'Kas' Kastelein, Joop Kooijman~ Rob Mokken and Rob
Vermeulen.
Mrs. Jean Sanders has impeccably performed her task ofcorrecting the
English texts and ofchecking the references. Without her help, publication
ofthisbookwould havebeenadoubtfulbusiness.
I also wish to thank Mrs. Judy Krug-Smorenburg and Mrs. Wyne Kock
Lambregts for having repeatedly typed the manuscripts ofmy ownarticles.
Finally, my thanks are due to the Institute ofSocial Studies, publisher of
Development and Change in which some of the articles first appeared, for
agreeing to publish this book; and to Yehezkel Dror for having made the
initial suggestion that the themeissue ofDevelopmentandChange should be
expandedintobookform.
ARNE F. LEEMANS
CONTRIBUTORS
Andren,Nils
ResearchInstituteofNationalDefence,ResearchPlanningDivision,Stockholm,Sweden
Brewer-Carlas,Allan-R.
UniversidadCentraldeVenezuela,Caracas,Venezuela
Caiden,Gerald
UniversityofHaifa,Israel
CarrilloCastro,Alejandro
Secretario General, Consejo Nacional de Ciencia y Technologia, Mexico
Cohen,Allan
UniversityofNewHampshire,Durham,USA
Dror,Yehezkel
HebrewUniversityofJerusalem,Israel
Friedberg,Erhard
InternationalesInstitutfUrManagementundVerwaltung,Berlin;
CentredeSociologiedesOrganisations,Paris,France
Groves,RoderickT.
UniversityofNorthernllIinois,DeKalb,USA
Hadisumarto,Djunaedi
FakultasEkonomiUniversitasIndonesia,Jakarta,Indonesia
Johnson,Nevil
NuffieldCollege,Oxford,England
Lee,Hahn-Been
SeoulNationalUniversity,Seoul,Korea
Leemans,ArneF. (editor)
UniversityofAmsterdam,Netherlands
Moharir,VasantV.
InstituteofSocialStudies,TheHague,Netherlands
Scheuner,Ulrich
ProfessorEmeritus,RheinischeFriedrich-WilhelmsUniversitat,Bonn,FDR
Siegel,GilbertB.
UniversityofSouthernCalifornia,LosAngeles,USA
Thoenig,Jean-Oaude
EcolePolytechniqueFederale,Lausanne,Switzerland
CONTENTS
Acknowledgements v
Contributors VII
Preface XI
A. F.Leemans, Overview I
PART I THEORETICAL STUDIES
A. F. Leemans, A Conceptual Frameworkfor the Study ofReform of
Central Government 65
R. T. Groves, Administrative Reform andPoliticalDevelopment 99
Hahn-Been Lee, Bureaucratic Models and Administrative Reform 114
Y. Dror, Strategiesfor Administrative Reform 126
G.E.Caiden,Implementation- theAchillesHeelofAdministrativeReform 142
A. R. Cohen, The Human Dimensions ofAdministrative Reform 165
PART II CASE STUDIES
A. Carrillo Castro, Administrative Reform in Mexico 185
A.-R. Brewer-Carias, Administrative Reform Experience in Venezuela
1969-1975: strategies, tactics andcriteria 213
!X
V. V. Moharir, Administrative Reforms in India 238
D. Hadisumarto and G. B. Siegel, The Optimum Strategy Matrix and
Indonesian AdministrativeReforms 252
N. Johnson, Recent Administrative Reform in Britain 272
U. Scheuner, PlanningandReform ofthe GovernmentalStructure in the
FederalRepublicofGermany 297
J. C. Thoenig and E. Friedberg, The Power ofthe Field Staff: the case
ofthe Ministry ofPublic Works, Urban Affairs andHousing in France 314
N. Andren, ProgrammeBudgeting: the Swedish Experiment 338
Index 359
PREFACE
The management of change in government is a subject of great practical
significance and oftheoretical interest. Many studies have been made ofex
periences in 'administrative reform' orreorganisation ofthe management of
government, but the theoretical side has been given only scant attention.
There is a considerable difference between this and the management of
changein business and otherprivate organisations, aboutwhicha great deal
of theory has gradually been developed although, as the 'Overview' will
demonstrate, this is also partly applicable to the management ofchange in
themachineryofgovernment.
This volume combines theoretical articles and practical experiences in the
form ofcountryandcasestudies. Inthisrespectitiscomparableto Mosher's
wellknown Governmental Reorganisations. The 'Overview' by the editor is
anextensivediscussionofthereorganisationofthemachineryofgovernment
as a subsystem ofa political system, both ofwhich interact with their en
vironment. It develops concepts and typologies for objectives, actors and
strategies ofreform. It leans heavily on information contained in the other
articles. The article on Indonesia by Hadisumarto and Siegel came to our
notice very shortly before the manuscript had to go to the printer, and little
referencecouldthereforebemadetoitintheOverview.
The articles in Part One are mostly on specific aspects ofthe reorganisa
tion ofthe machinery ofgovernment. Many ofthem have been previously
published in Development and Change, II, 2; others were written especially
for this volume. The first article, by the editor, gives a comprehensive ana
lytical-descriptive model for the study ofthe subject, which it is hoped will
provide a useful framework for the better understanding of the ideas and
experiences contained in the other articles in the book. Groves emphasises
administrative reform as a political process and the effects on it ofdifferent
types ofpolitical leadership. Lee relates bureaucratic models to types ofre
forms. Dror discusses eleven main strategic dimensions, with a clear em-
XII PREFACE
phasis on reform policy making, while Caiden surveys the reform process,
stressing the implementation ofreform policies. Finally, Cohen advocates a
behavioral approach to reorganisations in the machinery ofgovernment.
The case studies are presented in Part Two. Some of these describe and
analyse general programmes of administrative reform, others focus on a
specific reorganisation. The articles on developingcountries (Mexico, Vene
zuela, India and Indonesia) are in fact country studies which give an ana
lytical description ofthe experiences, programmes, failures and successes of
reorganisations oftheoverallmachineryofgovernment. Theyshowtheneed
for comprehensive reform in countries which are in the process of rapidly
increasingtheirgovernmental tasksandexpandingthe machineryofgovern
ment. Comprehensive reforms, necessary though they may be, prove very
difficult to realise. They also show the close relationships between such re
form programmes and their effects on the one hand, and.the political situa
tionontheother.
The case studies on European countriesfocus on certain limited reorgani
sations, although lohnson's article on Britain also analyses general features
ofBritish reforms. Scheuner describes the efforts made to introduce a cen
tralised planning system in the West German Federal Government: evi
dently a highly political problem, which underlines the linkage between
change in administrative structures, and political views and conflicts ofin
terestamongorgans ofgovernment. Thoenigand Friedberganalyseindepth
thehistoryofthemergeroftW9 Frenchcentralgovernmentdepartmentsand
the role of the principal actors in this reorganisation. Finally, Andren's
article on the introductiop ofa new budgetary system in Sweden illustrates
experiences gained with a successful reform in one ofthe most acute areas
ofchangeinpolitico/administrativeprocesses.
The factual information contained in the case studies may be of only
temporary value. But the more basic features which are brought to the fore
will be oflasting use to a study ofthe vital problem to which this book is
devoted.
