WHY SHOULD THE CHINESE PAY ANY ATTENTION?

I’ve been reflecting on my last 50 years of efforts at reforming public service systems – seeing if there was anything I could add to what I’ve already written, particularly about one of my last projects - in China.

Initially I belonged to the school which felt that the bureaucracy had too much power. A combination of Thatcher, “Yes, Minister” and New Labour saw my attitude swing back to the political system. More recently, the technocrats seemed to have wrested power back – only for Trump and Brexit to remind us that “the people” also have a voice.

The grand old man of this field is B Guy Peters whose The Politics of Bureaucracy first came out in the 1970s, is now in its 5^th edition and is considered the bible on this issue. He has been an inspiration and active presence since 1990 in the network of schools of public administration in central and eastern Europe (NISPAcee) – Politico-Administrative Relations – Who Rules? (2001) very much showing his influence. That this is still an important issue in the region is evident from recent publications such as The Principles of Public Administration produced by SIGMA (OECD) in 2016 and Quality of Public Administration – a toolbox for practitioners (EU 2017).

A lot of what the global community preaches as “good practice” in government structures is actually of very recent vintage in their own countries and is still often more rhetoric than actual practice. Of course public appointments, for example, should be made on merit – and not on the basis of family, ethnic or religious networks.

· But civil service appointments and political structures in Belgium and Netherlands, to name but two European examples, were – until very recently – influenced by religious and party considerations. Rules were set aside to keep religious and political blocks (or pillars) happy.

· In some countries indeed such as Northern Ireland (until recently). the form and rhetoric of objective administration in the public were completely undermined by religious divisions. All public goods (eg housing and appointments) were, until the end of the 20^th century, made in favour of Protestants.

· The Italian system has for decades been notorious for the systemic abuse of the machinery of the state by various powerful groups – with eventually the Mafia itself clearly controlling some key parts of it. US influence played a powerful part in sustaining this in the post-war period – but the collapse of communism removed that influence and has allowed the Italians to have a serious attempt at reforming the system. At least for a few years – before Berlusconi scuppered it all

These are well-known cases – but the more we look, the more we find that countries which have long boasted of their fair and objective public administration systems have in fact suffered serious intrusions by sectional interests.

The British and French indeed have invented words to describe the informal systems which perverted the apparent neutrality and openness of their public administration –

· the “old boy network” which was still the basis of the senior civil service in Britain in the 1960s and 1970s a century after the first major reform.

· And the elitist and closed nature of the French ENArque system has, in the new millennium, become the subject of heated debate in that country – the system of senior civil servants moving to business was known as “pantouflage”. And Macron recently decided to close the school

It is clear that national european systems are becoming more politicised. This trend was started by Margaret Thatcher who simply did not trust the senior civil service to do what she needed. She brought in individuals who had proved their worth in the private sector and came into government service for a limited period of time (sometimes part-time and unpaid) to do a specific task which the Minister or Prime Minister judged the civil servants to be incapable of doing. Her critique of the UK Civil Service was twofold –

- first that those at the top were so balanced and objective in their advice that they lacked the appetite to help lead and implement the changes she considered British society needed; and

- second that those further down the ladder lacked the management skills necessary to manage public services. The Labour Government since 1997 inherited a civil service they considered somewhat contaminated by 18 years of such dominant political government – and had more than 200 such political appointees.

Such trends are very worrying for the civil service which has lost the influence and constraining force they once had. The two decades since then have seen national reputations for integrity challenged – the British judicial system, for example, took a battering after a series of revelations of judicial cockups and its policing has always been suspect. But it was 2015 before a book with the title ”How Corrupt is Britain?” ed by D Whyte appeared – followed a few years later by “Democracy for Sale - dark money and dirty politics”; by Peter Geoghegan (2020).

Conclusion; Too much of the commentary of international bodies on transition countries seems oblivious to this history and these realities – and imagines that a mixture of persuasive rhetoric and arm-twisting can lead to relevant, rapid and significant changes in the behaviour of the political and administrative elites. A bit more humility is needed – and more thought about the realistic trajectory of change. To recognize this is not, however, to condone a system of recruitment by connections – “people we know”. Celebration of cultural differences can sometimes be used to legitimize practices which undermine social coherence and organizational effectiveness. The acid test of a State body is whether the public thinks they are getting good public services delivered in an acceptable way!

The first wave of enthusiasm, in global bodies and academia alike, for anti-corruption (or “good governance” as it was more diplomatically called) strategies ended in the new millennium – when a note of realism became evident. It was at that stage that I realized that some of the best analyses were coming from the anthropologists

Bill Clinton was famous for his election mantra – “economics, economics, economics”. In similar vein, instead of “best practice”, consultants should be repeating “CONTEXT, CONTEXT, CONTEXT”

Further Reading

Shifting obsessions – 3 essays on the politics of anti-corruption Ivan Krastev (2004) Bulgarian political scientist exposes the hypocrisy behind the rhetoric

Syndromes of corruption – wealth,power and democracy Michael Johnson (2005) An American political scientist who has been involved with the Transparency International work does good comparative work here

Corruption – anthropological perspectives edited by D Haller and C Shore (2005) quite excellent collection of case studies

Confronting Corruption, building accountability – lessons from the world of international development advising L Dumas, J Wedel and G Callman (2010)

Unaccountable – how anti-corruption watchdogs and lobbyists sabotaged america’s finance, freedom and security ; J Wedel (2016) another anthropologist

Making Sense of Corruption; Bo Rothstein (2017) one of the clearest expositions – this time by a Scandinavian political scientist

comment from Patrick Cockburn on the corruption of the British political class

https://nomadron.blogspot.com/2021/09/the-power-elite.html

https://nomadron.blogspot.com/2021/03/corruption-outsiders-overview.html

Swallowed by the Internet

These last few days, I’ve had the feeling of being completely inundated by the freebies and goodies available on the internet. My interests – as readers know – are rather weird things such as the process of change; the machinery of government; the strange fixation anglo-saxons have developed over the past 40 years or so for “reforming” it; and the mental maps we use to make sense of all these things. 

At the weekend, I cam across a couple of items which took me back some 5 years to the 

point at which I realised I had become totally confused by all the talk about “systems 

thinking” and “complexity” and developed one of my famous tables to encourage me to get some clarification. 
Here I am some 5 years later still confused – so that clearly didn’t work. 

But a couple of items looked promising – first Systems thinking for social change by David Stroh (2015) 

which offered 2 pluses. 

• It’s a lot clearer than the books I listed in 2018 and 

• it’s in the field of social change which is one which has long fascinated me. 

Sure it’s a bit repetitive – if not formulistic in that American way – but its clarity and optimism 

encourage forgiveness. There’s an interview with him here. 
His approach has been much influenced by the work of Donella Meadows and, if you read 

just one thing about systems theory, I strongly urge you to read her short paper on Leverage Points which just might take you to her “Thinking in Systems – a primer”; Donella Meadows (2008) 

That then led me to a little 2017 publication from the OECD – "Complexity and Policymaking” and another intriguing pamphlet Building Better Systems; Charles Leadbetter (2020) which is certainly formulaistic as indicated by this excerpt

One simple way to sum this up as a rule of thumb is to remember that 3 x 4 = 12.

• System innovation involves work across three levels, the macro, meso and micro;

• Change is unlocked using the four keys: purpose, power resources and relationships;

system innovation involves people playing 12 roles

But that led me to a highly readable book which has just been published in open edition Wicked Problems in Public Policy by Brian Head (2022) and "Complexity and the Art of Public Policy – solving society's problems from the bottom up" David Colander and Roland Kupers (2014)

As if that wasn't enough, I was then sucked in by Martin Stanley's brilliant website named simply UK Civil Servant by a QUITE BRILLIANT summary of the various recent disasters which have struck the UK. Surfing brought me material I only vaguely knew about.

Radical Visions of Future Government (NESTA 2019) Some zany ideas 170pp

Windrush Lessons Learned (2020) an independent report ordered by the Home Sec of the time. It’s 280 pages long!

Civil Service-Ministerial Relations (Bennett Institute 2022)

Reimagining the State – an essay (Reform 2022) 15pp

Reimagining whitehall (Reform 2022) 20pp

By that stage, I just wanted to shoud out "Stop the World, I want to get off!

We're here to serve you

Our worship of progress and the “new” leads us to imagine that “performance management” is a modern discovery – and one that will set things aright in the world. It’s therefore marvellous to read this exasperated quotation from none less than the Duke of Wellington in 1812 -

Whilst marching from Portugal to a position which commands the approach to Madrid and the French Forces, my officers have been diligently complying with your requests, which have been sent by H.M Ship from London to Lisbon and thence by dispatch rider to our headquarters. We have enumerated our saddles, bridles, tents and tent poles, and all manner of sundry items for which His Majesty’s Government holds me accountable. I have dispatched reports on the character, wit, and spleen of every officer. Each item and every farthing has been accounted for with two regrettable exceptions for which I beg your indulgence. Unfortunately the sum of one shilling and ninepence remains unaccounted for in one infantry battalion’s petty cash and there has been a hideous confusion as to the number of jars of raspberry jam issued to one cavalry regiment during a sandstorm in western Spain. This reprehensible carelessness may be related to the pressure of circumstances since we are at war with France, a fact which may come as a bit of a surprise to you gentlemen in Whitehall.
This brings me to my present purpose, which is to request elucidation of my instructions from His Majesty's Government, so that I may better understand why I am dragging an army over these barren plains. I construe that it must be one of two alternative duties, as given below. I shall pursue either one with my best ability, but I cannot do both.
1. To train an army of uniformed British clerks in Spain for the benefit of the accountants and copy-boys in London, or perchance
2. To see to it that the forces of Napoleon are driven out of Spain.

I owe the quotation to a brilliant website set up by a senior civil servant (Martin Stanley) which contains the clearest and best analysis I have ever read of British Civil Service Reform.
Most of the stuff written about this subject is by social science academics – who lack the historical perspective and seem to have bought into the rationalistic belief system. This guy first sets the political/sociological context for the breathless British changes of the past 40 years.

It is ironic that many of the problems facing today's politicians stem from the successes of their predecessors. Indeed most of them have their roots in our ever increasing wealth and ever improving health.For a start, UK society is now vastly more wealthy than 50 years ago. A typical post-war household literally had nothing worth stealing:- No car, no TV, no phone, nothing! No wonder it was safe to leave doors open along most British streets. But GDP has risen four-fold since then. Most homes nowadays have a wide range of marketable goods, and huge amounts of money to spend on non-essentials, including on drink and drugs. The crime rate has therefore soared, as drug addicts seek to get their hands on others' wealth, and drunks cause various sorts of mayhem. Our wealth causes other problems:
• We can afford to eat much more, and travel everwhere by car, and so get fat and unhealthy, with consequences for the health service.
• There are now 10 times as many cars on the roads as in the 1950s, with obvious implications for transport and environmental policies.
• Much the same applies to the growth in cheap air travel.

Other problems are caused by the fact that the distribution of the new wealth is uneven. And many of us seek to catch up by borrowing as if there is no tomorrow. Credit card debt, for instance, increased from Ł34m in 1971 to Ł54,000m in 2005.
The other big success is our health, and not least the fact that we are all living so much longer than before. Life expectancy at birth is currently increasing at an astonishing 0.25 years per year. Healthy life expectancy is also increasing - but only at around 0.1 years per year. In 1981, the expected time that a typical man would live in poor health was 6.5 years. By 2001 this had risen to 8.7 years. Just imagine what pressure this is putting on the health and social services ... ... not to mention on pension schemes. The average age of men retiring in 1950 was 67. They had by then typically worked for 53 years and would live for another 11 years. By 2004, the average of men retiring was 64. They had by then typically worked for 48 years and would live for a further 20 years. As a result, the work/retired ratio had halved from about 5 to about 2.4. These are huge (and welcome) changes, but with equally huge - and politically unwelcome - implications for tax, pensions and benefits policies.
It is also noticeable that voters nowadays want to spend more and more money on holidays, clothes, durables, etc. whilst few seriously try to promote the benefits that result from the public provision of services. Voters therefore resent paying taxes, and the Government is under constant pressure to spend less, despite the problems summarised above.
In parallel with all this, society has become more complex and less deferential:
• Voters are much more likely to have been to university, to have travelled abroad, and to complain.
• The family is less important.
• Adult children are much more likely to live some distance from their parents
• 42% of children are now born outside marriage.
• The media are much more varied and much more influential, whilst the public are much more inclined to celebrate celebrity.
• Voters expect the quality of public services to improve and refuse to accept inadequate provision.
• They also turn more readily to litigation.
• The Human Rights Act and the Freedom of Information Act add to these pressures.
• There have been other more subtle, but perhaps more profound, changes.
• The original welfare state was a system of mutual insurance - hence "National Insurance". It has slowly changed into a system of rights and entitlements based on need. This is morally attractive - but it is also open to abuse, which breeds resentment.
• The post-war generation believed in self-help. Much post-school education was through unions or organisations such as the Workers Educational Association. We now expect the state to provide, and 50% of our children go to university.
• Our increasing wealth and improving health - let alone the absence of major conflict - means that we really do have very little to worry about compared with our predecessors. But of course we still worry, and demand that the Government "does something about" all sorts of lesser risks, from dangerous dogs through to passive smoking.
• Another interesting change has been the introduction of choice into health and education policies. This is in part because modern voters want to be able to choose between different approaches to medicine and education. But choice is also a very effective substitute for regulation in that it forces the vested interests in those sectors to take more notice of what their customers actually want. There are, however, some unwelcome consequences arising from the introduction of choice into public services:
• The availability of choice inevitably gives a relative advantage to the sharp elbows of the middle classes. They can, for instance, move into the right catchment areas, and are better at demanding access to the right doctors.
• Choice also requires there to be spare capacity, which has to be paid for. Less popular schools and hospital have to be kept open - often at significant cost - so that they can improve and offer choice when their busy competitors become complacent and less attractive.
• Ultimately, however, persistently unpopular and/or expensive schools and hospitals have to be allowed to close, or else they have no incentive to improve. But such closures always provoke various forms of protest.

What sort of people, faced with all this, would aspire to be politicians? No wonder we get "the leaders we deserve" (title of a marvellous book in the 1980s by Alaister Mant). This extended quotation from the website is just setting the scene for the wry descriptions of the numerous initiaives taken by British Governments since 1968 to get a civil service system "fit for purpose". For more read here
Last night saw torrential rain here in Sofia - and today is like a typical dreich day in Scotland. The fig tree has become enormous - and is bending in the wind. Great after the heat of the past few days. I cycled before 09.00 to the great butcher's shop (diagonally from the Art Nouveau Agriculture Ministry building) and up a short drive which supplies pork, chicken and sausages sublimely marinated in honey and spices. There is a buzz about the place - these people know they are providing heavenly products!!!