juggling actors in the reform of the Cambodian administration PDF
Preview juggling actors in the reform of the Cambodian administration
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 1 ForStellaMaite 2 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 3 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 4 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 5 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 6 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 7 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 8 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 9 Rights UNTAC UnitedNations Transitional AuthorityinCambodia UNV UnitedNations Volunteers UNWCC UnitedNations WarCrimes Court USA UnitedStates ofAmerica WPK Worker’s PartyofKampuchea 10
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