David Fe rraz
National Institute of Public Administration,
Ministry of Finances and Public Administration
Portugal
david.ferraz@ina.pt
David Fe rra z , 2009 1

What is an hybrid manag e me nt mo de l ? (senior civil servants)
Is a political-administrative configuration that combines the follow selection
ing
criterion of top public managers:
Independent from politicians Politicized
neutrality ensure Public policies application
David Fe rra z , 2009 2

Is this a ne w is s ue ?
XIX century XX century
I
What kind of political- Critical issue of contemporary
administrative system? democracies
• A politicized system based on political
,
trust • w kind of interaction betw
hat een political actors
• A professional system based on
, and administrative actors ?
neutrality and independence of
administration
(Peters, 1987)
David Fe rra z , 2009 3

Theory
There is a clear separation betw een
political functions and administrative ones Prática
Relações de interdependência
e interpermeabilidade
(Aberbach, Putm Rockm 1981 ;Diam
an an, ant, 1989 apud Herzfeld, 1992; Wilson,
1887; Carm 1987; M
o, ulgan 2007; Peters, 1996; Stillm 1997; Rosenbloom 1998;
an, ,
M ozzicafreddo, 2001; Rocha, 2001; Chevallier, 2002 e 2005; Madureira e Rodrigues,
2006; Pitschas, 2006)
David Fe rra z , 2009 4

Practice
Teoria
Democratic legitimacy
Interdependence and
interpermeability relations
Detentores de legitimidade
técnica
Specific knowledge
Technocracy
Inform political adm
al inistrative
configurations
Detentores de
Trade-off
conhecimentos 3. em
D ocratic legitimacy issues
especializados
5. eutrality and independence issues
N
David Fe rra z , 2009 5

Politicization level on the top public managers selection
Politicization level
1
0,8
0,6
0,4
0,2
0
1789-1829
1829-1860
patronage 1860-1980
nepotism
1980-(…) Period
Northcote trevelyan report
Pendleton act
Tatcher
Reagan
• Cyclic evolution of the top public managers selection models
• The perturbations that cause the dysfunction of the existing model leads to a new
model in which the affirmed values tend to minimize that perturbations
David Fe rra z , 2009 6

Ho w are to day 's ’ po litic al adminis trative s ys te ms c o nfig ure d ?
• What kind o f po litic al adminis trative s ys te m s ho uld we ado pt?
• A m professionalized?
ore
• A m politicized?
ore
• What are the advantag e s o f e ac h s ys te m ?
• What kind o f s e le c tio n mo de ls s ho uld we ado pt in o rde r to e nhanc e :
• The trans pare nc y
• The de mo c ratic le g itimac y
• The public manag e me nt
David Fe rra z , 2009 7

The senior civil servants selection evolution in the context of the state and
administrative models
Inte rac tio n mo de ls be twe e n po litic al and adminis trative ac to rs
Graphic
Models Predominant values
representation
Peters
Formal model; State administration model Neutrality/
1
Aberbach, Putman e Rockman Independence
Image 1, 2
Hybrid values of trust,
Aberbach, Putman e Rockman
neutrality and 2
Image 4
independence
Peters
Village life / functional village life
Trust 3
Aberbach, Putman e Rockman
Image 3
Adaptado de Peters, 1987
David Fe rra z , 2009 8

The senior civil servants selection evolution in the context of the state and
administrative models
Trust
3
o iza n
P litic tio
A
2
B
1
Ne lity
utra
Ind p nd nc
ee e e
P fe s na tio
ro s io liza n
In practice: How senior civil servants are selected?
More politicized or professionalized systems?
David Fe rra z , 2009 9

Political administrative macro-configuration
Political administrative Macro-configurations Representative countries
Traditional european model France, Spain, Portugal
British model United Kingdom, New Zealand
American Model USA
categories of analysis:
•Re ruitm nt
c e P litic l-a m tra
o a d inis tivem c -
a ro
•Se c n
le tio c nfig tio c s s ie
o ura n a e tud s
•Em lo e m d ls
p ym nt o e
Shepherd, 2007
David Fe rra z , 2009 10

MACRO-MODEL CHARACTERISTICS
European
British American
Typologies of traditional
model model
model
Closed recruitment X
Recruitment
X X
Open recruitment
Political model X
Selection Professional model / Meritocratic -----------------------------------
Hybrid model X X
Public ---------------------------------
employment Career system
regime on
Career system based on a post/position x X
senior civil
servant
functions Post/position system (service commission) X
some more details…
David Fe rra z , 2009 11

Political-administrative systems
French and Portuguese model
• Great power to select or dismiss appointed senior civil servants
“at the pleasure of government” (Shepherd, 2007)
• Criterion:
• political or personnel confidence or trust (party allegiance)
• government program is implemented whatever its merit (Mulgan, 2007)
• 46% of the French senior civil servants had, within their nuclear family, someone who was
also a Senior Civil Servant (Bellier, 2005)
Very closed relations between politicians and the civil servants
Favours a patronage/nepotism based system
David Fe rra z , 2009 12

Hybrid systems
United Kingdom / United States of America
• Relative clear border between administration and politicians (Shepherd, 2007: 20-23)
Se r
nio Co p te e
m e nc s
Le d rs
a e hip re re l
fe ntia
Co m e
m itte
o ra tic s
Go dp c e
•JESPc ria
rite
C Se e
ivil rvic (UK)
Eva tio o the
lua n f Cdoe
c nd a s
a id te p ip s
rinc le
(QRB) •ECQ
(USA)
s rtlis
ho ts TRAINING
De is n
c io no ina p lic o theinte t
m l ub ity n rne
(p litic l in s m
o a o e (PLUMBOOK)
css
ae)
• USA:
• 66% of the posts are occupied by members of the SES
• 34% selected considering political factors
• from those 22% are already members of the SES
David Fe rra z , 2009 13

Is the re s pac e fo r hybrid manag e me nt mo de ls ?
Co nc lus io n
• The senior civil servants are a fundamental elem on the form
ent ulation and application of
public policies
• +/- independence and neutrality  -/+ political trust
• Politicization is a double side phenomenon
• Trust should not be considered only has a political m eaning
 It is also an obligation from senior civil servants to the State, m than to the
ore
political pow or party
er
The ins titutio nalizatio n o f S e nio r Civil s e rvants func tio ns c o uld inc re as e
de mo c rac y le g itimac y and to p PA po s itio ns pro fe s s io nalizatio n
David Fe rra z , 2009 14

Co nc lus io n P litic tio
o iza n
C
A
+politicization; trust B
P fe s na tio
ro s io liza n
Type of institution Government powers Selection of the
President of the
institution
Ind c
ire t Ag nc
e y Sup rinte e e
e nd nc Go rnm nt no ina d
ve e m te
Ad .
m Dire tio p w r
c n o e
Ind p nd nt
ee e Re ula ry o a tio /
g to rg niza n P p rc na top rlia e
ro o io l a m nt P rlia e no ina d
a m nt m te
Ad .
m c m is io
o ms n re re e tio
p s nta n
(career regulation)
Auto m us
no o P fis io l a s c tio
ro s na s o ia n Only le a tute g
g lity la e Ele te b o r s nio
c d y the e r
Ad .
m Stra g o nta ns(no
te ic rie tio t c s rva in thec re r
ivil e nts a e
vinc tive
ula )
+Professionalization; independence; neutrality
Thank You
david.ferraz@ina.pt
David Fe rra z , 2009 15