Representative Bureaucracy and Performance: Public Service Transformation in South Africa PDF
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EXECUTIVE POLITICS AND GOVERNANCE Representative Bureaucracy and Performance Public Service Transformation in South Africa Sergio Fernandez Executive Politics and Governance Series Editors Martin Lodge London School of Economics and Political Science London, UK Kai Wegrich Hertie School of Governance Berlin, Germany The Executive Politics and Governance series focuses on central govern- ment, its organisation and its instruments. It is particularly concerned with how the changing conditions of contemporary governing affect per- ennial questions in political science and public administration. Executive Politics and Governance is therefore centrally interested in questions such as how politics interacts with bureaucracies, how issues rise and fall on political agendas, and how public organisations and services are designed and operated. This book series encourages a closer engagement with the role of politics in shaping executive structures, and how admin- istration shapes politics and policy-making. In addition, this series also wishes to engage with the scholarship that focuses on the organisational aspects of politics, such as government formation and legislative institu- tions. The series welcomes high quality research-led monographs with comparative appeal. Edited volumes that provide in-depth analysis and critical insights into the field of Executive Politics and Governance are also encouraged. Editorial Board Philippe Bezes, CNRS-CERSA, Paris, France Jennifer N. Brass, Indiana University Bloomington, USA Sharon Gilad, Hebrew University Jerusalem, Israel Will Jennings, University of Southampton, UK David E. Lewis, Vanderbilt University, USA Jan-Hinrik Meyer-Sahling, University of Nottingham, UK Salvador Parrado, UNED, Madrid, Spain Nick Sitter, Central European University, Hungary Kutsal Yesilkagit, University of Utrecht, the Netherlands More information about this series at http://www.palgrave.com/gp/series/14980 Sergio Fernandez Representative Bureaucracy and Performance Public Service Transformation in South Africa Sergio Fernandez Indiana University Bloomington Bloomington, IN, USA Executive Politics and Governance ISBN 978-3-030-32133-8 ISBN 978-3-030-32134-5 (eBook) https://doi.org/10.1007/978-3-030-32134-5 © The Editor(s) (if applicable) and The Author(s), under exclusive license to Springer Nature Switzerland AG 2020 This work is subject to copyright. All rights are solely and exclusively licensed by the Publisher, whether the whole or part of the material is concerned, specifically the rights of translation, reprinting, reuse of illustrations, recitation, broadcasting, reproduction on microfilms or in any other physical way, and transmission or information storage and retrieval, electronic adaptation, computer software, or by similar or dissimilar methodology now known or hereafter developed. The use of general descriptive names, registered names, trademarks, service marks, etc. in this publication does not imply, even in the absence of a specific statement, that such names are exempt from the relevant protective laws and regulations and therefore free for general use. The publisher, the authors and the editors are safe to assume that the advice and information in this book are believed to be true and accurate at the date of publication. Neither the publisher nor the authors or the editors give a warranty, expressed or implied, with respect to the material contained herein or for any errors or omissions that may have been made. The publisher remains neutral with regard to jurisdictional claims in published maps and institutional affiliations. This Palgrave Macmillan imprint is published by the registered company Springer Nature Switzerland AG The registered company address is: Gewerbestrasse 11, 6330 Cham, Switzerland To my parents A cknowledgements I owe a great debt of gratitude to many for their assistance, partici- pation, and support in bringing this book to fruition. I would like to thank a number of my colleagues for their honest feedback and helpful advice, including Jennifer Brass, Jill Nicholson-Crotty, Sean Nicholson- Crotty, Claudia Avellaneda, Nikolaos Zirogiannis, Maureen Pirog, Brad Heim, Anh Tran, Tom Rabovsky, David Good, and Coady Wing at Indiana University; Margaret Chitiga-Mabugu, David Fourie, Gerda Van Dijk, Lianne Malan, Natasja Holtzhausen, and Onkgopotse Madumo at University of Pretoria; Christelle Auriacombe, Danielle Nel, and Fanie Cloete at University of Johannesburg; and Gerrit Van der Waldt at North-West University. Chris Thornhill at University of Pretoria, Kenneth Meier at American University, and Robert Cameron at University of Cape Town were instrumental in helping me formulate and refining ideas and offered comments on portions of the manuscript. I owe a special thanks to Samuel Koma of Milpark Education for teach- ing me so much about South Africa, introducing me to important and knowledgeable public figures, and believing in the value of this research. I am also indebted to anonymous reviewers and editors at Journal of Modern African Studies, Governance, Public Administration Review, and Palgrave Macmillan for their critical and constructive assessment of the research. Michael McGuire and John Graham at Indiana University pro- vided generous support for travel and research assistance and Nervison Temba and Shepherd Moyo’s logistical support proved invaluable for field research. Of course, this book could not have been written without vii viii ACKNOWLEDGEMENTS the gracious participation and insight of dozens of public officials from national departments and Chapter 9 institutions. I owe the biggest debt of gratitude to Hongseok Lee at University at Albany, who spent count- less hours searching for sources, coding archival data, and serving as a frank sounding board. A heartfelt thank you goes out to my wife, par- ents, and old friend John Clark for their love and encouragement. Most of all, I give thanks to my Lord for his love and grace. c ontents 1 Representative Bureaucracy and Performance 1 2 Apartheid and the Bureaucracy 23 3 Addressing the Legacy of Apartheid 69 4 Public Sector Reform and the Quest for a Capable Public Service 113 5 The Theory of Representative Bureaucracy 143 6 Representative Bureaucracy and Performance: Empirical Evidence from South Africa 189 7 Why Do Representative Bureaucracies Perform Better? 239 8 What We Have Learned and the Way Forward 267 Index 281 ix A A bout the uthor Sergio Fernandez is Associate Professor at Indiana University O’Neill School of Public and Environmental Affairs and Affiliate Faculty in Indiana University African Studies Program. He also has appointments as Extraordinary Professor at University of Pretoria School of Public Management and Administration and Visiting Professor at University of Johannesburg Centre for Public Management and Governance. He earned his Ph.D. in Public Administration from the University of Georgia. His research focuses on organizational behavior in the public sector, public sector leadership, representative bureaucracy, and govern- ment outsourcing. His work has appeared in leading policy and man- agement journals, including Public Administration Review, Governance, Journal of Public Administration Research and Theory, American Review of Public Administration, Journal of Policy Analysis and Management, Leadership Quarterly, Nonprofit and Voluntary Sector Quarterly, and Journal of Modern African Studies. He has served on six journal edito- rial boards and is an editor for Africa Today. He lives in Bloomington, Indiana, with his wife and three dogs. xi
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