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Leadership and Culture: Comparative Models of Top Civil Servant Training PDF

365 Pages·2015·1.934 MB·English
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Governance and Public Management IIAS Series: Governance and Public Management International Institute of Administrative Sciences (IIAS) – Improving Administrative Sciences Worldwide The International Institute of Administrative Sciences (IIAS) is a NGO with scientific purpose established in 1930 whose seat is still in Brussels. The Institute is a worldwide platform providing a space for exchanges that promote knowledge and practices to improve the organization and operation of Public Administration and to ensure that public agencies will be in a position to better respond to the current and future expec- tations and needs of society. It provides thus a forum where practical experiences and theoretical analyses of experts (academics and practitioners) in public administration worldwide and from all cultures are presented and discussed. To cover the diversity of its members, the IIAS has set up four sub-entities: – The EGPA (European Group for Public Administration) – The IASIA (International Association of Schools and Institutes of Administration) – The LAGPA (Latin American Group for Public Administration) – The AGPA (Asian Group for Public Administration) Website: http://www.iias-iisa.org Governance and Public Management Series Series edited by: Robert Fouchet, Institute of Public Management and Territorial Governance, Aix-Marseille University, France. Taco Brandsen, Professor, Radboud Universiteit Nijmegen (The Netherlands). Editorial Series Committee Robert Fouchet, Directeur des Publications, IISA – IIAS Publications Director Masahiro Horie, Président du Comité Scientifique et des Programmes, IISA – IIAS Programme and Research Advisory Committee Chair Rolet Loretan, Directeur général de l’IISA – IIAS Director General Taco Brandsen, Membre – Member, GEAP-EGPA Juraj Nemec, Membre-Member, AIEIA-IASIA Rommel Rosas, Membre-Member, GLAAP-LAGPA Zhiyong Lan, Membre-Member, GAAP-AGPA Andrew Massey, Membre-Member, Rédacteur en Chef de la RISA-IRAS Editor in Chief Dr. Fabienne Maron, Conseiller scientifique de l’IISA-IIAS Scientific Administrator. Coordinatrice des Publications – Publications Coordinator. The Governance and Public Management series, published in conjunction with the International Institute of Administrative Sciences (IIAS), brings the best research in public administration and management to a global audience. Encouraging a diversity of approach and perspective, the series reflects the Institute’s conviction for a neutral and objective voice, grounded in the exigency of fact. How is governance conducted now? How could it be done better? What defines the law of administration and the management of public affairs, and can their implementation be enhanced? Such questions lie behind the Institute’s core value of accountability: those who exercise authority must account for its use – to those on whose behalf they act. Titles in the series include: Leo Huberts THE INTEGRITY OF GOVERNANCE What it is, What we Know, What is Done and Where to go Taco Brandsen, Willem Trommel and Bram Verschuere (editors) MANUFACTURING CIVIL SOCIETY Principles, Practices and Effects Pekka Valkama, Stephen J. Bailey and Ari-Veikko Anttiroiko (editors) ORGANIZATIONAL INNOVATION IN PUBLIC SERVICES Forms and Governance Victor Bekkers, Jurian Edelenbos, Bram Steijn (editors) INNOVATION IN THE PUBLIC SECTOR Linking Capacity and Leadership Montgomery Van Wart, Annie Hondeghem, Erwin Schwella and Paul Suino (editors) LEADERSHIP AND CULTURE Comparative Models of Top Civil Servant Training Leadership and Culture Comparative Models of Top Civil Servant Training Edited by Montgomery Van Wart Professor, Department of Public Administration, California State University San Bernardino, USA Annie Hondeghem Professor, Public Governance Institute, KU Leuven, Belgium Erwin Schwella Professor of Public Leadership, School of Public Leadership, Stellenbosch University, South Africa with Paul Suino Independent scholar, USA Selection and Editorial Matter © Montgomery Van Wart, Annie Hondeghem and Erwin Schwella 2015 Softcover reprint of the hardcover 1st edition 2015 978-1-137-45412-6 All Remaining Chapters © Their Respective Authors 2015 Foreword © Christopher Pollitt 2015 All rights reserved. No reproduction, copy or transmission of this publication may be made without written permission. No portion of this publication may be reproduced, copied or transmitted save with written permission or in accordance with the provisions of the Copyright, Designs and Patents Act 1988, or under the terms of any licence permitting limited copying issued by the Copyright Licensing Agency, Saffron House, 6–10 Kirby Street, London EC1N 8TS. Any person who does any unauthorized act in relation to this publication may be liable to criminal prosecution and civil claims for damages. The authors have asserted their rights to be identified as the authors of this work in accordance with the Copyright, Designs and Patents Act 1988. First published 2015 by PALGRAVE MACMILLAN Palgrave Macmillan in the UK is an imprint of Macmillan Publishers Limited, registered in England, company number 785998, of Houndmills, Basingstoke, Hampshire RG21 6XS. Palgrave Macmillan in the US is a division of St Martin’s Press LLC, 175 Fifth Avenue, New York, NY 10010. Palgrave Macmillan is the global academic imprint of the above companies and has companies and representatives throughout the world. Palgrave® and Macmillan® are registered trademarks in the United States, the United Kingdom, Europe and other countries ISBN 978-1-349-49787-4 ISBN 978-1-137-45413-3 (eBook) DOI 10.1057/9781137454133 This book is printed on paper suitable for recycling and made from fully managed and sustained forest sources. Logging, pulping and manufacturing processes are expected to conform to the environmental regulations of the country of origin. A catalogue record for this book is available from the British Library. A catalog record for this book is available from the Library of Congress. Contents List of Illustrations vii Foreword by Christopher Pollitt ix Notes on Contributors xii Introduction: Understanding the Role and Context of Senior Civil Servant Training 1 Montgomery Van Wart and Annie Hondeghem Part I Training Senior Civil Servants in Anglo-American Countries 1. Australia 25 John Halligan 2. The United Kingdom 41 Sylvia Horton and Montgomery Van Wart 3. The United States of America 56 Heather Getha-Taylor Part II Training Senior Civil Servants in Eastern European Countries 4. Estonia 73 Külli Sarapuu, Merilin Metsma, Tiina Randma-Liiv, and Annika Uudelepp 5. Hungary 89 Márk Gál and Márton Gellén 6. Romania 103 Cristina Hinţea and Tudor Ţiclău Part III Training Senior Civil Servants in Germanic and Northern European Countries 7. Austria 121 Isabell Egger-Peitler, Monika Knassmüller, and Renate Meyer 8. Belgium 137 Annie Hondeghem, Christian de Visscher, Maxime Petit Jean, and Silke Ruebens v vi Contents 9. Denmark 153 Bente Bjørnholt and Morten Balle Hansen 10. Finland 167 Turo Virtanen 11. Germany 183 Werner Jann and Sylvia Veit 12. The Netherlands 199 Trui Steen, Caspar van den Berg, and Peter Leisink 13. Switzerland 216 Adrian Ritz and Leonie Schuessler Part IV Training Senior Civil Servants in Latin European Countries 14. France 235 Alexandra Couston, Joyce Liddle, and Robert Fouchet 15. Italy 252 Denita Cepiku, Alessandro Hinna, and Sandro Mameli Part V Training Senior Civil Servants in Other Countries 16. Colombia 271 Pablo Sanabria and Claudia N. Avellaneda 17. Namibia 288 Erwin Schwella, Yrika Maritz, Michael Conteh, and Elsie Nghikembua 18. South Africa 304 Peter E. Franks 19. South Korea 321 Sangmook Kim Conclusion: Understanding the Reasons for the Differences in Importance, Quantity, and Quality of SCS Training 337 Montgomery Van Wart and Annie Hondeghem Index 349 List of Illustrations Tables 0.1 Countries endorsing explicit competency models for the SCS or civil service in general 14 1.1 SES programs, 2013 32 3.1 Executive core qualifications (ECQs) 60 3.2 Training assessment 63 3.3 Satisfaction with training 64 5.1 Content summary of the mandatory basic exam curriculum 99 5.2 Summary of the content of the civil service advanced exam 99 6.1 Mandatory professional training programs (MSTP) for SCSs 2009–2012 110 6.2 NACS activity between 2010–2012 111 6.3 Position of SCS in the administration apparatus 113 6.4 NACS competency framework (based on needs assessment) for prefects and subprefects 114 6.5 Competency frameworks comparison 115 8.1 Number of civil servants and mandate holders in the different levels of government, 2012–2013 139 9.1 Educational background of department heads, in percents (1979, 1989, 1999, 2009) 159 9.2 Educational background of agency CEOs in percents (1995, 2000, 2005, 2008) 159 10.1 Top civil servants by sex in Finland in June 2013 171 11.1 Training for civil servants in the Federal administration according to the “Agreement on public sector modernization and training in the Federal administration” (2007) 193 12.1 Educational levels of Dutch senior civil servants, 2007 206 12.2 Educational background of Dutch senior civil servants and organization type, 2007 208 13.1 Timeline and key events affecting the training of top civil servants in Switzerland 219 13.2 Management positions in the Swiss Federal Administration 220 14.1 Overview table presenting ÉNA, INET, and EHESP, 2011–2012 243 14.2 Overview table presenting ÉNA, INET, and EHESP, 2008–2012 245 15.1 Stages of reform and training supports 254 vii viii List of Illustrations 15.2 Main managerial reforms in Italy 257 16.1 Colombian normative regarding senior civil servants 279 16.2 Norms regarding the training of Colombian senior officials 280 19.1 The SCS competency model 327 19.2 Training trends by administration 330 C.1 Summary of senior civil servant training in select countries 340 C.2 Importance of SCS training 344 C.3 Quality of SCS training factors 346 Figures 0.1 Context and background of the training of senior civil servants 7 4.1 The Estonian top civil service competency framework 78 7.1 Top civil servants (TCSs) in Austria’s Federal Administration 127 10.1 Finnish governmental system 169 15.1 Public employment trends in Italy 255 16.1 Number of top servants who received training from ESAP (Higher School of Public Administration) 282 17.1 NIPAM’s capacity-building framework 302 19.1 Grade-based training structure 329 Appendix 16.1 Inventory of existing educational programs suitable to top management 286 Foreword For some, the training of top civil servants may sound rather a boring topic or, at least, one of only narrow, technical interest. To my mind, quite the contrary is true: the nature of such training is closely linked to some of the most crucial questions in contemporary liberal democracy, and its implica- tions go far beyond the technical. Liberal democracies are supposed to be representative systems, in which those who are elected by the citizens play central roles in deciding, as the people’s representatives, what gets done. In practice, of course, such repre- sentatives cannot possibly know enough to decide many matters in any detail, and neither could they have the time or skills actually to carry out what they have decided. They need help, both to decide and to implement, and, since the nineteenth century in many countries, civil servants have been the principal source of that help. Many civil servants never see a poli- tician face-to-face, but top civil servants do. They stand right at the fron- tier between politics and administration. They are frequently influential. Because of this they need clear rules on what they should and should not do, and we citizens need a clear understanding about how top officials are recruited and trained, and how, once in action, they are going to remain both competent and accountable. The above considerations have applied for many decades, and have gener- ated a vast literature and an unending debate, in both of which academics have played important parts. Different countries have arrived at different “public service bargains” between politicians and their top officials. Recently, however, the nature of the politics-administration frontier seems to have begun to change. Indeed, the nature of politics itself is changing, and this poses many questions for top civil servants. These changes have been widespread, though occuring in different degrees in different countries. They include: (cid:77)(cid:1) Increased electoral volatility and declining party loyalty on the part of citizens (cid:77)(cid:1) New parties springing up and making party competition more complex and multilateral (cid:77)(cid:1) More media, reporting more quickly and aggressively, 24/7; the growing salience of the sound bite (cid:77)(cid:1) The personalization of politics, in the sense of media portrayals of govern- ments and politics becoming more focused on individual characters and their foilbles and on clashes between personalities, rather than on policies and programs ix

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