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Current printing (last digit): 10 9 8 7 6 5 4 3 2 1 PRINTED IN THE UNITED STATES OF AMERICA To my son,Cyrus Foreword For the last decade, this collection of essays on topics in comparative and development public administration has been a basic source of information for academics,practitioners,and students around the world. Professor Ali Farazmand of Florida Atlantic University has now planned, organized, and edited this revised and expanded Second Edition, which updates and enhances the value of the original publication. Although a large majority of the chapters have been retained,most of them have been revised taking into account recent developments. More than 20 new chapters have been added,increasing the collection to 76 chapters and making it even more comprehensive and current. Most parts of the volume contain new contribu- tions. The contents are organized in two main units,the first treating a variety of elements in the study of comparative and development administration and the second dealing more specifically with administrative performance and political responsibility. There are two major alterations in the format,one in each unit. The first is a new group of four essays on historical bases of public administration and bureaucracy, dealing with ancient Persia; Greece, Rome, and Byzantium; India; and the Aztecs,Incas,and Mayas. The second is the deletion of a brief section on bureau- cratic behavior and public policy,although one of the two articles in it has been shifted elsewhere in the volume. As before, the authors represent an impressive array of expertise for many countries, but their contributions do not advocate any particular approach to comparative analysis. The result is a collection valuable enough to serve the differing needs of a variety of users. This is a welcome addition to the literature available in our field at the opening of a new cen- tury. Ferrel Heady Professor Emeritus Public Administration and Political Science University of New Mexico Albuquerque,New Mexico v Prologue Public Administration always involves both processes and tools:the processes of implementing public policy and the tools of public office. Officials bear the responsibility for turning goals into realties—without them, policies remain only promises. In this context, development has two faces:it may refer to policies that affect a society’s ability to achieve public goals,or to the capac- ity of government agencies to implement these purposes. I think of the first as the administration of development,and the latter as the development of administration. Of course,both need to be viewed in a comparative perspective in order to reach valid conclusions. Analyses based on just one case or country cannot discover what has general and theoretical significance and what is bet- ter is explained by unique circumstances. This second edition of the Handbook of Comparative and Development Public Administra- tionis a greatly expanded version of a work that has already established itself as a prime source of knowledge in this field. It is divided into two parts:the first dealing more with the administrative processes involved in development (both economic growth and bureaucratic capabilities) and the second part focuses on bureaucracy as a crucial instrumentality for these processes. Although the work emphasizes development in less developed countries,it does not neglect the experience of more developed countries:each sheds light on the other. Moreover,although the focus is on con- temporary conditions,the book includes chapters on historical antecedents that put current condi- tions into a deeper context. Whatever happens today needs to be understood by looking into the past and this perspective also paves the way for anticipating the future more clearly. The bureaucratic role in development is always complementary with non-bureaucratic roles. Within governance as a broad process,the agenda or goals of development are normally set outside the bureaucracy which is then charged with special responsibility for implementing pub- lic policies set by others. The private sector,including entrepreneurs working for profit in market systems and civic groups working for a wide diversity of principled concerns,is a partner in this process in that they both support and constrain public officials. Public policy depends heavily on their cooperation and initiatives to achieve its goals. Thus,both administration and bureaucracy must always be seen as elements in a complex,as parts of a much larger system. Nevertheless,the processes of policy implementation and the interest of bureaucrats as cit- izens and subjects of a state inevitably help shape outcomes. We need to see these forces at work in the making of policy,where bureaucratic interests play a role,as well as in the implementing of vii viii Prologue policy where the capabilities and constraints experienced by officials help shape outcomes. In short, the divide between politics and administration is always amorphous and fluctuating. In some respects,we may even say that administration is just a form of politics. The chapters that fol- low shed light on these phenomena in many ways,at different levels,places,and times. They do not necessarily agree with each other or present a unified message. Rather,just as our world is a manifold inviting multiple perspectives on complex phenomena,so this handbook offers the read- er a wide variety of points of view and insights. Editor Ali Farazmand has performed a remarkable service by bringing them all together and presenting them in a coherent pattern. Fred W. Riggs University of Hawaii Honolulu,Hawaii Preface The second edition of this encyclopedic handbook is a major update—a revised and expanded ver- sion of the first edition,published a decade ago. The first edition was an overwhelming success as the only comprehensive handbook ever published that covered the twin fields of comparative and development public administration plus the field of bureaucratic politics and administrative theo- ry. It was well received,readily adopted by key scholars,teachers,and trainers at universities and institutes around the world. Due to its overwhelming success,the first edition was reprinted sev- eral times during the 1990s, a decade of historical changes that included the fall of the USSR, sweeping privatization and governmental reforms around the world,and accelerating globaliza- tion of capital with significant implications—both positive and negative—for governance,public administration,and national self-determination. The second edition of this encyclopedic handbook reflects these global changes with new discussions of historical roots of governance and public administration traced in the ancient civi- lizations,as well as original materials on ethics and accountability issues in modern public admin- istration. Contemporary changes of significance demanded substantial revision of the first edition, plus significant updates that reflect currency in the fields of comparative and development public administration,as well as bureaucratic politics and administrative behavior worldwide. Addition of the historical materials as well as new treatments of ethical dimensions contributed to the expansion of the handbook from the 55 chapters of the first edition to 76 chapters,plus major revi- sion and expansion of the chapters carried over from the first edition. The breadth,scope,issues, and coverage of materials in the new edition take the readers well beyond the horizon of the triple fields through their intellectual/conceptual foundations,development,and applications around the world. The purpose of this edition remains the same as that of the first:to bring together essays that analyze basic issues and major aspects of the fields of comparative and development public administration, and comparative bureaucratic politics and public policy. Aspects of each field include a wide range of sectoral issues of industrial,urban,rural,agriculture,education,and other aspects of development and administration. The major concerns of students of comparative and development public administration as well as of policy makers include issues of changes,mod- ernization,dependency and independence,government reorganization,administrative reform and development,privatization,globalization,political economy of reform,ethics and accountability, ix x Preface professionalism,and historical roots of modern public administration in the ancient and medieval civilizations and philosophical grounds of both the East and the West. Additionally, a focus on bureaucracy, bureaucratic politics, and political regime mainte- nance,as well as alternatives to bureaucratic administration,can be chosen for comparative analy- sis of administrative performance and political functions. Alternatives to bureaucratic administra- tion have gained global currency. Much of this global trend in government and public administration reforms has embraced sweeping privatization, which must be understood in the much broader context of the globalization of capitalism. This book covers these aspects and approaches, as well as a wide range of functions and related issues. These include budgeting and financial management, planning and development, personnel administration, public management, public enterprise management, policy analysis, organization and reorganization, local and intergovernmental administration, globalization and regionalization, civil service politicization, bureaucratic politics, administrative efficiency and effectiveness, representation, corruption, ethics and accountability, civilization and administra- tion,change and revolution,democracy,and more. Such a comprehensive treatment has never been attempted before. Although smaller collec- tions are available in the fields,they are narrowly conceived and have not gone beyond certain spe- cific areas of the world. Most of these works either are grossly outdated or serve only a limited audience. The new edition of Ferrel Heady’s Public Administration:A Comparative Perspective is,of course,a powerful textbook and is well adopted,but it is neither a handbook nor an ency- clopedia. The worldwide adoption of the first edition of this handbook as a primary textbook as well as a reference book provided a strong impetus for publication of the second edition. The result is a comprehensive and up-to-date volume of original materials on governance, public administration,comparative and development administration,and comparative bureaucratic poli- tics administrative theory and behavior that could have easily been published in two volumes but is offered in a single volume for adoption as a primary textbook as well as an encyclopedic refer- ence book. The book is divided into two major units,followed by a comprehensive index. The first unit, which is very broadly focused,is organized into 10 parts and 56 chapters It covers a wide range of issues and aspects of public administration and public policy in developed and developing nations of the world. Part I examines comparative and development administration in the temporal context of past,present,and future perspectives,followed by a discussion of the problems and organiza- tional aspects of development and comparative administration. Part II presents a comprehensive discussion of ancient civilizations and administration,with original chapters on the administrative legacies of Persia,Greece,Rome,Byzantium,India,early native America,and later European tra- ditions that shaped the modern enterprise of public administration. Part III presents 11 chapters on public administration in more developed nations of the West (North America and Europe), the East (Japan),and Australia. Of these,five chapters are entirely new,while others have been revised and updated. Part IV offers impressive material on public administration and governance issues in the former Soviet Union and eastern and southern Europe. Part V presents nine chapters on vari- ous aspects and issues of public administration and governance in Asia and Africa,with the most chapters focusing on Asia—covering countries from China,Thailand,and Korea in East Asia to India. Kenya,Nigeria,and southern Africa are covered by three other chapters. Part VI covers various aspects of public administration in developing nations of the Near and Middle East,Latin America,and the Caribbean; seven chapters—three new and four revised and updated—analyze such issues as state and public administration traditions in Iran from ancient times as well as contemporary reform in that country,bureaucracy and reform in the Mid- dle East and Latin America,local government in authoritarian Chile,and state administration in socialist Cuba. Part VII presents two chapters examining the issues of dependency,independence,