This paper endorses the problematic about how political and administrative actors relay with each other focusing, particularly, on the selection of Senior Civil Servants, as key actor in the process of implementing public policies. Regarding the methodology pursued, a review of the literature and a documental analysis were carried out, as well as the application of an on-line questionnaire for Senior Civil Servants who were in managerial positions between 2004 and 2011 (n=964). The questionnaire incorporated 40 questions, aiming to explore HRM practices and the relation with the process of implementation of public policies, trying to identify the way in which Portuguese public managers are select. An email was send to 8166 directors and former directors of the Portuguese Public Administration who attended management courses under the Statute Rules (EPD). These officers were contact by email, presenting the study objectives and ensuring the ethical (ego, anonymity and confidentiality) care associated with the collection and processing of data. The questionnaire ran on limesurvey platform and 1766 responses were obtained; 964 were consider valid. Collected data has processed through SPSS Statistical Software (Version 22). Analyses of descriptive statistics were carried out, namely through the use of measures of central tendency and dispersion measures, in view of the characterization of the sample and the relations between politics and administration, namely with regard to the identification of the factors that contributed the most to the selection of public officials. In all analyses, the results of the hypothesis tests were statistically significant, with a p value equal to or less than .05 (p≤ .05). The analysis allowed us to confirm two main components / criteria that are in the source of the selection of Senior Civil Servants (political and professional components) and, within each, the respective factors that compose them. We were able to recognize that political component has its weight, but it was not possible to confirm the hypothesis that, in Portugal (2004-2011), the factors that influenced the selection of senior public officials were, predominantly, political. We also aim to discuss these findings under the HRM hybrid systems (of SCS) has an approach for a more effective HRM on the achievement of the SDGs.

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David Ferraz 1
(A)Political Public Administration?
Hybrid recruitment systems in the context of the SDGs
D a v i d F e r r a z
david.ferraz@iscte-iul.pt

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David Ferraz 2
• Determinants of Senior
Civil Servants selection
criteria
• What factors? PT (2004-2011)
• Determine the relation between
political and administrative actors
Main goal
• Characterization of the leaders
• Formal and informal roles played by
public leaders
• Factors contributing to the selection
of public leaders in Portugal
• Factors that may favor or hinder the
process of governance and
implementation of public policies in
Portugal
Specific goals

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David Ferraz 3
The 2004-2011 period:
• 2004 to 2011: New professionalization logic in the NPM framework in Portugal
• Empirical confirmation of the main factors that are at the origin of the selection of public
leaders and the identification of their sub-factors/criteria in the pre-Cresap period
• Comparisons of evolutionary
• National and/or international, with comparable factors/indicators with other studies (levels of
politicization/professionalization)
Starting question:
• "What are the factors that influenced the selection of public leaders in Portugal between
2004 and 2011?"

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Theory
• The relationship between administration and policy constitutes a critical success factor in the design and implementation of
public policies, implying, in the context of the rule of law:
Subjection to
political power
Subordination to
the fundamental
principles of the
rule of law
Dual
Administration
subordination
Politicisation
Democratic
Legitimacy
Professionalization
Technique
Legitimacy
Trade-off
Construído pelo autor

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Prática
Political
actors
Administrative
actors
Relações de interdependência
e interpermeabilidade
Actores
políticos
Actores
Administrativos
Theory
Clear and crystalline separation
between functions and political roles
and administrative roles and roles
(Aberbach, Putman Rockman, 1981 ;Diamant, 1989 apud Herzfeld, 1992; Wilson, 1887;
Carmo, 1987; Mulgan 2007; Peters, 1996; Stillman, 1997; Rosenbloom, 1998; Mozzicafreddo,
2001; Rocha, 2001; Chevallier, 2002 e 2005; Madureira e Rodrigues, 2006; Pitschas, 2006)

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Political actors
Administrative actors
Interdependence relationships
and interpermeability
Practice
Actores
políticos
Actores
Administrativos
Detentores de
conhecimentos
especializados
Detentores de legitimidade
técnica
Teoria
Policy-Administrative settings:
1. Democratic legitimacy
2. Technical legitimacy (professionalization,
neutrality and independence)
Holders of expertize
Holders of democratic legitimacy
Trade-off
(Aberbach, Putman Rockman, 1981 ;Diamant, 1989 apud Herzfeld, 1992; Wilson, 1887; Carmo, 1987; Mulgan 2007; Peters, 1996; Stillman, 1997; Rosenbloom, 1998;
Mozzicafreddo, 2001; Rocha, 2001; Chevallier, 2002 e 2005; Madureira e Rodrigues, 2006; Pitschas, 2006)

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Formal Model
•Polítical-
administrative
separation
Village life
•Polítical
administrative
integration
Functional village life
•Polítical
administrative
sectorial/corporative
Integration
Opponent Model
•Politicians and PA
managers are
concorrentes fo
power  1 win
State Administration Model
•Administration
controls decision
making process
How the selection of public officials has evolved in the context of State and
administration models
1) Models: B. Guy Peters (1987)
2) Images: Aberbach, Putnam e Rockman (1988)
Image 1
• Political separation-
Administration
Image 2
•Administration
rationality guarantees
public interest and
limits political
arbitrariness
Image 3
•Politicians were
bringing "energising"
ideas that the
administration was
taking to balance
(Tatcher 80s)
Image 4
•Politicians and leaders
are competing for the
power
•
Image 5
•Leader is political and
technical
•walk on two legs

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Empirical study
Empirical study
•Political perspective
•Operationalization of concepts
•Methodology
Data collection and processing
Data collection method: survey by online questionnaire
Interviews
State Secretary (PA)
SCS President

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Population
In 2011 (December 31), 6745 Public
Officials (DGAEP, 2015), of which:
Senior managers: 1031
Intermediate leaders: 5714
Sample
PA compulsive courses for SCS
8116 emails sent
1766 responded
1045 responded more fully to the questionnaire
81 eliminated because they have not played steering functions (Perg.
Control)
964 respondents:
Direct ADM: 56.74%
Indirect ADM: 42.01%
Independent ADM.: 1.24%
Potentiated by online questionnaire, with the respective care (Yeager, 2007; Johnson, 2010)
Characterization of respondents (Obj. 1)
964 Respondents:
~ 15% senior managers
~ 80% middle level managers
~ 5% coordination positions
LAW
Main Degrees:
1. Law
2. Administration / PA
3. Economy
4. Management
5. Exact Sciences

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Reduced % of managers with experience in ministerial
offices
(Rouban, 2007)
Cabinet experience

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Managers experience
Only about 40% of leaders have 45 or fewer years;
Only 5% is less than 36 years old
The majority (almost 55% of the leaders) did not have a
single year of experience in the private sector
If we consider the exercise of management functions in
this sector,% is almost 80% without this type of
experience

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Gender,
Tendency towards balance, with more female
responders in middle level functions, despite in
higher positions the male gender registers a slightly
larger number
Qualifications
(Nunes 2000/2012)
Tendency to supremacy of law areas
18% tem habilitações superiores à
licenciatura (3% phd)
Poor rates of professional training
Ascendents
(Bellier, 1993)
~78% had no parents
with a degree
(of those who had, those were linked to teaching, Engineer and
health)
Technical Experience
(Noordegraaf, 2007)
Predominantly internal recruitment:97%
Experience in PA:
Top level managers: 21 a 30 years
Middle level managers.: 11 a 20 years
In management positions: 9 to 15 years
Political Experience
(Nunes,2000; Rouban 2007)
Não chega a 10% os que estiveram em gabinetes ministeriais
46-55
years old
Ideology
(Nunes,2000; Rouban 2007)
Trend towards the left center,
increasing this trend as the
responsibility of the position
increases
Public Managers profile (Portugal)

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The higher the responsibility level of the position (2004-2011), the lower the
percentage of directors with political affiliation on the right (3), and the greater the
Left (10)
!More politicization on the left in the exercise of higher responsibility positions
(França: Rouban, 2007)
(Obj. 1 e 2)
40.86%
20.43%
38.71%
0.00%
10.00%
20.00%
30.00%
40.00%
50.00%
Almost 40% of respondents claimed to have political
affiliation and left-wing ideology VS 20% right
From those with partisan affiliation

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More and less relevant factors in the selection of PA managers
KMO = 0,832; X2 (78) = 6930.746, p < 0.001
highly significant

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What we found in Portugal: PA managers for the SDGs goals
Top level managers:
1. Sharing the same strategic vision
2. Behavioral competences of the person
3. Someone else's proximity and trust
4. Frequency with regularity of decision circles
5. Knowledge from the areas of training/specialization
Middle level managers:
1. The behavioral competences of the person
2. Knowledge from the areas of training/specialization
3. Previous experience in PA
4. Previous similar functions performed as a technician
5. EPD Competencies

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Greater weight of exogenous factors against
endogenous
No managers stated that his not been
renewed
"for reasons related to performance
assessment in steering functions."
Why PA managers change?

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David Ferraz 17KMO = 0,832; X2 (78) = 6930.746, p < 0.001
highly significant

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David Ferraz 18KMO = 0,832; X2 (78) = 6930.746, p < 0.001
highly significant

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Conclusions:
The way in which public
leaders are selected (and
maintained –
employment regime)
influences the decision-
making process at A.P.
and
influences/conditions
the governance process
The autonomy claimed
by the new public
management reforms
does not seem to be
perceived by the leaders
Profile:
Internal recruitment
Majority has a degree on
law
Poor managerial tranning
backgroud
Tendency to gender
equallity
Ideology:: almost the
double of the managers are
from left (~37% VS 20%)
More politicization on the
left in the exercise of
higher responsibility
positions
Top and middle level
managers selection
criteria have same factors
but with different
priorization. The same:
1.Knowledge from
the areas of
training/specializati
on
1.Behavioral
competences of the
person
More emphasis on managers
levels:
Behavioral
competences of the
person and:
•At top level: Sharing
the same strategic
vision
•At middle level:
Knowledge from the
areas of
training/specialization
The contribution to the theoretical development in this area of study focuses on the practical confirmation of the main factors that are at the
origin of the selection of public leaders and the identification of their sub-factors/criteria, associating them around the Political and
professional components

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Thank You
david.ferraz@iscte-iul.pt

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Politicisation
Professionalization
Legitimacy
Technique
Neutrality independence
Legitimacy
Democratic
Trust
A
B
Evolution of the selection of public leaders in the context of State and administration models
3
2
1
“It makes more sense to talk about
situational or hybrid professionalism "
Noordegraaf (2007)

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Variável dependente:
• Cargo de direção desempenhado
• Superior (1º ou 2º grau)
• Intermédio (1º ou 2º grau)
Variáveis Independentes:
• Maioritariamente qualitativas
• De caracterização
• Fatores políticos
• Fatores profissionais
• Contextuais (reforma adm. pública)

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The provenance of the leaders is
essentially the career of senior
technician, followed by special
careers
% high tax of managers without
training relevant to the exercise
of the job (~ 18%)

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