EUROPEAN PERSPECTIVES FOR PUBLIC ADMINISTRATION Geert Bouckaert & Werner Jann (eds) THE WAY FORWARD European Perspectives for Public Administration European Perspectives for Public Administration The Way Forward Edited by Geert Bouckaert and Werner Jann Leuven University Press Published with the support of and Published in 2020 by Leuven University Press / Presses Universitaires de Louvain / Universi- taire Pers Leuven. Minderbroedersstraat 4, B-3000 Leuven (Belgium). Selection and editorial matter © Geert Bouckaert and Werner Jann, 2020 Individual chapters © The respective authors, 2020 This book is published under a Creative Commons Attribution Non-Commercial Non-Derivative 4.0 Licence. Further details about Creative Commons licences are available at http://creativecommons.org/licenses/ Attribution should include the following information: Geert Bouckaert, Werner Jann, eds, European Perspectives for Public Administration: The Way Forward. Leuven, Leuven University Press. (CC BY-NC-ND 4.0) ISBN 978 94 6270 203 5 (Paperback) ISBN 978 94 6166 307 8 (ePDF) ISBN 978 94 6166 308 5 (ePUB) https://doi.org/10.11116/9789461663078 D/2020/1869/10 NUR: 759 Layout: Crius Group Cover design: Frederik Danko Cover illustration: nmann77, © Fotolia.com This book is dedicated to our friend and colleague Professor Christopher Pollitt (1946–2018). Table of Contents Preface to the EPPA I Book 11 Acknowledgments 13 About the Authors 15 I Introduction 1 The EPPA Project 21 Geert Bouckaert and Werner Jann 2 The Survey: A Long-Distance Conversation about the Future of Public Administration in Europe 43 Jana Bertels, Geert Bouckaert, Werner Jann II Public Administration and Futures 1 From Public Administration in Utopia to Utopia in Public Administration 71 Geert Bouckaert 2 Governing for the Future: Means, Ends and Disconnects 85 Paul Joyce 3 Scenarios as Thought Experiments for Governance 103 Meelis Kitsing III Public Administration and Disciplines 1 Public Administration and Disciplines 129 Thurid Hustedt, Tiina Randma-Liiv and Riin Savi 2 Public Administration and Law 147 Martin Burgi 3 Seeing Public Bureaucracies Like a Sociologist: (A Plea Towards) Reconnecting Sociology and Public Administration 163 Philippe Bezes IV Public Administration and Cultures 1 Challenges in the Face of Diversities: Public Administration in Spain as an Example 189 Salvador Parrado 2 The New Diversity: Increasing Ethnic Heterogeneity and its Consequences for Public Governance 207 Mark Bovens, Roel Jennissen, Godfried Engbersen and Meike Bokhorst 3 In Search of a Better Understanding of Cultural Diversity in European Public Administration Research and Practice, with a Focus on Religion and Language 225 Bogdana Neamtu V Public Administration and Practices 1 Shadowland: The Poorly-Mapped, Underdiscussed Yet Vital Interface Between Public Administration Research and Practice 249 Christopher Pollitt 2 Forms of Knowledge for the Practice of Public Administration 273 Edoardo Ongaro 3 Do we Practise What we Preach when we Teach (and Research) Public Administration? 293 Raffaella Saporito VI Public Administration and Country Perspectives 1 Public Administration in Estonia: A Search for Identity 317 Külli Sarapuu and Leno Saarniit 2 Public Administration in France: The Shadow and Light of a Revival 335 Jean-Michel Eymeri-Douzans 3 Public Administration in Germany: Precarious Present, Promising Future? 351 Stefan Becker and Michael W. Bauer 4 Public Administration in Hungary: Emerging Dynamics in an Illiberal Democracy 367 György Hajnal 5 Public Administration in Italy 387 Denita Cepiku, Marco Meneguzzo 6 Public Administration in the Netherlands: State of the Field 403 Philip Marcel Karré , Martijn van der Steen, Zeger van der Wal, and Thomas Schillemans 7 Public Administration Research in Norway: An Organisational and Institutional Approach to Political Organisations 421 Per Lægreid 8 Public Administration in Portugal 439 Filipe Teles VII Lessons and next steps Lessons and Next Steps 455 Geert Bouckaert and Werner Jann Preface to the EPPA I Book by Professor Jean-Michel Eymeri-Douzans (EGPA President, 2019) and Professor Edoardo Ongaro (Past EGPA President 2013–2019) Imagined by Geert Bouckaert, Past President of the International Institute of Administrative Sciences, IIAS, and his colleague and friend Werner Jann, the project baptised European Perspectives for Public Administration (EPPA) – of which this book embodies some of the key findings – undertakes to do something that learned societies rarely engage in. What the initiators have proposed to the epistemic community of scholars studying public institutions on our “old” European continent is to start a collective reflection upon the transformations of researching and teaching Public Administration, looking twenty years ahead from now. In doing so, Geert Bouckaert and Werner Jann have taken inspiration from a similar endeavour already existing on the other side of the Atlantic: the Minnowbrook Conferences. Convened every 20 years, at Syracuse University’s Minnowbrook Conference Center, they bring together major scholars in Public Administration and management to discuss the state of the field and its future : the first meeting was held in 1968 under the high patronage of Dwight Waldo, Minnowbrook II in 1988, and Minnowbrook III in 2008. In a spirit of lively trans-Atlantic dialogue, Geert Bouckaert and Werner Jann have imagined that, also every twenty years, but in the “entre-deux ” decade, starting from 2018, we, the Europeans, could have our own Minnowbrook exercise: that is precisely what the European Perspectives for Public Administration is all about! EPPA can be seen as a sort of secularist and collective “spiritual exercise”: we are asked to abandon our obsession with daily tasks and short-term duties, which are too often the vehicles for path-dependent and decreasing-returns thinking, and rather to take the move from longer-term possible or plausible futures, and then, from this unusual standpoint and perspective, reconsider how we research and how we teach public institutions. The EPPA exercise is a salutary effort to “think out of the (chronologic) box” to bring renewed lucidity and discernment to the very centre of our academic field, and revisit its foundations through embracing the challenges that confronting synchronic and diachronic variations 12 EuroPEAn PErsPEc TivEs For Public AdminisTr ATion inevitably brings with it. In particular, EPPA is a way of questioning the ways and means in which civilisations (including religions) and cultures (national, but also regional, or even institutional ones) have an influence on public administration, both as a practice (or “craft”) and as an academic discipline, and what it means to develop research and teaching for an increasingly interdisciplinary field like Public Administration. We are so happy and proud that – thanks to the strong commitment and cordial leadership of Geert Bouckaert and Werner Jann, and also the excellent work of Jana Bertels – the EPPA I, which has so widely involved the participation of the EGPA community, has achieved its ambitious goals. As a jewel of EGPA, the EPPA project happens to be a shining illustration of the progressive institutionalisation of EGPA in the European landscape as a major learned society, and an engine for the development of the study and the practice of public institutions and public policies worldwide. It is obvious that there are many functional, cultural and institutional good reasons for the existence of a European Group for Public Administration, a continental- level form of governance of the organisation of research and teaching in the administrative sciences (Ongaro, 2019), between national associative forms and the global one (like the IIAS). The success of EPPA I is another testimony to this, as only a European dimension could have enabled the attainment of the results already achieved by it. The consolidation of EGPA as an institution and a leading learned society in the world has taken place thanks to the engagement of thousands of talented colleagues, through the chain of generations since the mid-1970s when EGPA was established (Bouckaert, van de Donk, 2010), and through the leadership of successive EGPA Presidents: the EPPA initiative, launched by two honorary EGPA Presidents, Werner Jann (2001–2004) and Geert Bouckaert (2004–2010), is another magnificently carved stone added to the solid walls of our common house. The work of good craftsmen never ends. The EPPA I findings now be- ing published here, it is not too early to start thinking in the perspective of EPPA II... for 2038: long live EPPA! References Bouckaert, G., & van de Donk, W. (Eds.). (2010). The European Group for Public Administration (1975–2010): Perspectives for the Future. Brussels: Bruylant. O’Leary, R., Van Slyke, D. M., & Kim, S. (2010). The Future of Public Administration around the World: The Minnowbrook Perspective. Washington, DC: Georgetown University Press. Ongaro, E. (Ed.). (2019). Public Administration in Europe: The Contribution of EGPA. London: Palgrave. Acknowledgments This book would not have been possible without the amazing and quite unforeseen support of a great number of institutions and individuals. We are first of all both extremely grateful to the Alexander von Humboldt Foundation for the generous funding of this project through the Anneliese Maier Research Award, which allowed us to pursue unconventional questions and use even more unconventional ways to develop our agenda. Only a highly unusual and flexible research grant like this could make a project like this possible. The project got under way when in September 2014 the Alexander von Humboldt Foundation awarded the Anneliese Maier Research Award to Geert Bouckaert. The (quite impressive) prize money, lasting for five years, stipulated that it should be used to strengthen Public Administration Teaching and Research in Germany, and that it should be undertaken in cooperation with a German university, but otherwise there were no strings attached. Geert Bouckaert choose the University of Potsdam and Werner Jann as his partners, and both of us decided that the money should be used not just for Germany, but for Public Administration in Europe in general. Besides the Alexander von Humboldt Foundation we are therefore also very grateful to our two universities, in particular the Potsdam Centre for Policy and Management, as part of the Universität of Potsdam, and the KU Leuven Public Governance Institute, which supported this project right from the beginning, and especially Inge Vermeulen, who administered all the technical aspects of our project. We are particularly grateful to the more than 150 participants of our four thematic seminars and the final conference at the University of Lausanne, which provided the necessary inspirations, debates and vital support for our project. We thank IDHEAP (Institut Des Hautes Etudes en Administrations Publiques) at the University of Lausanne and the CNFPT (Centre national de la fonction publique territorial, especially Benoît Cathala) in Strasbourg which, besides our two universities, hosted these events. The final conference in 2018, in Lausanne, gathered together the leadership of EGPA, Edoardo Ongaro, of NISPAcee, György Hajnal, and also the convenor of the latest Min- nowbrook conference, Tina Nabatchi from the Maxwell School at Syracuse University. They all supported and encouraged this visionary project. Last not least, we want to thank the contributors to this volume for their flexibility and willingness to answer our call for short, topical or even 14 EuroPEAn PErsPEc TivEs For Public AdminisTr ATion provocative essays, outside the usual academic comfort zone. The team at Leuven University Press did a great job in preparing this publication. We are particularly grateful for the enthusiasm and support of the entire EGPA steering committee and its executive secretary Fabienne Maron. The decision of the consecutive EGPA presidents Edoardo Ongaro and Jean- Michel Eymeri-Douzans to turn EPPA into a strategic EGPA project makes us proud and confident about the project’s future. We are looking forward to the next milestones of this project in 2038 and 2058, in dialogue with Minnowbrooks IV and V, in 2028 and 2048. Finally, this whole project, the conferences and the publication would not have been possible without the exceptional and extraordinary support of Jana Bertels, who managed and navigated this obviously not always very easy programme (and its two leaders) with her unfailing good humour. We dedicate this book to our friend and colleague the late Christopher Pollitt, who was a great inspiration during its conception and the early years. Unfortunately he cannot see the final result, nor tell us how to improve it. We hope this book will inspire the European Public Administration community in its research and teaching strategies for the next twenty years. Geert Bouckaert and Werner Jann Leuven and Potsdam, September 2019. About the Authors Michael W. Bauer is Jean Monnet Professor of Comparative Public Ad- ministration and Policy Analysis, German University of Administrative Sciences, Speyer. Stefan Becker is Post-doctoral Fellow at the research unit of the Chair of Comparative Public Administration and Policy Analysis, German University of Administrative Sciences, Speyer. Jana Bertels is Junior Researcher at the Faculty of Economics and Social Sciences, University of Potsdam. Philippe Bezes is CNRS (Centre National de la Recherche Scientifique) Research Professor in the Centre d’Études européennes et de Politique comparée (CEE) at Sciences Po, Paris. Meike Bokhorst is Senior Researcher at the Netherlands Scientific Council for Government Policy (WRR) in The Hague. Geert Bouckaert is Professor at the Public Governance Institute at the Faculty of Social Sciences, KU Leuven. He is the former president of the International Institute of Administrative Sciences (IIAS) and of the European Group for Public Administration (EGPA). Mark Bovens is Professor of Public Administration at the Utrecht University School of Governance and member of the Netherlands Scientific Council for Government Policy (WRR) in The Hague. Martin Burgi is Professor of Public and European Law at the Ludwig- Maximilians-University in Munich as well as Director of the Public and European Law Research Centre for Public Procurement Law and Administra- tive Cooperation. Denita Cepiku is Professor of Public Management at the Department of Management and Law in the Faculty of Economics at the University of Rome Tor Vergata. 16 EuroPEAn PErsPEc TivEs For Public AdminisTr ATion Godfried Engbersen is Professor of Sociology in the Department of Public Administration and Sociology at Erasmus University Rotterdam, and a member of the Netherlands Scientific Council for Government Policy (WRR). Jean-Michel Eymeri-Douzans is Professor at the Institute of Political Studies of Toulouse. He is President of the European Group for Public Administration (EGPA). György Hajnal is Professor at the Department of Public Policy and Manage- ment, Corvinus University of Budapest, and Research Chair at the Centre for Social Research of the Hungarian Academy of Sciences. He is the president of NISPAcee. Thurid Hustedt is Professor of Public Administration and Management at the Hertie School, Berlin. Werner Jann is Professor emeritus of Political Science, Administration and Organisation at the University of Potsdam and the former President of the European Group for Public Administration (EGPA). Roel Jennissen is Senior Researcher at the Netherlands Scientific Council for Government Policy (WRR). Paul Joyce is Associate Professor in the Institute of Local Government Studies (INLOGOV) at the University of Birmingham and Visiting Professor of Public Management at Leeds Beckett University (UK). Philip Marcel Karré is Assistant Professor in Public Administration at Erasmus University Rotterdam. Meelis Kitsing is Head of Research at the Foresight Centre and Professor at the Estonian Business School, Tallinn. Per Lægreid is Professor at the Department of Administration and Organisa- tion Theory at the University of Bergen. AbouT ThE AuThors 17 Marco Meneguzzo is Professor of Public Administration and Management at the Department of Management and Law in the Faculty of Economics at the University of Rome Tor Vergata, Italy, and Professor of public and non-profit management at the Faculty of Economics at the Università della Svizzera Italiana, Switzerland. Bogdana Neamtu is Associate Professor in the Department of Public Ad- ministration and Management, Babeş-Bolyai University, Romania. Edoardo Ongaro is Professor of Public Management at the Department of Public Leadership and Social Enterprise, the Open University, UK Fellow of the Academy of the Social Sciences and former president of the European Group for Public Administration (EGPA). Salvador Parrado is Professor at the Department of Political and Administra- tion Science at the National Distance Education University (UNED), Madrid. Christopher Pollitt was Professor emeritus at the Public Governance Institute at the Faculty of Social Sciences, KU Leuven. Tiina Randma-Liiv is Professor of Public Policy at the Ragnar Nurkse Department of Innovation and Governance, Tallinn University of Technology. Raffaella Saporito is Associate Professor of Practice of Government, Health and Not for Profit at the SDA Bocconi School of Management, Milan. Leno Saarniit is Lecturer and Programme Director of Bachelor studies at the Ragnar Nurkse Department of Innovation and Governance at Tallinn University of Technology. Külli Sarapuu is Associate Professor at the Ragnar Nurkse Department of Innovation and Governance at Tallinn University of Technology. Riin Savi is a Research Fellow at Ragnar Nurkse Institute of Innovation and Governance, Chair of Public Management and Policy, at Tallinn University of Technology. 18 EuroPEAn PErsPEc TivEs For Public AdminisTr ATion Thomas Schillemans is Professor of Public Administrations at Utrecht University and is co-dean at the Netherlands School of Public Administration (NSOB). Filipe Teles is Assistant Professor in the Department of Social, Political and Territorial Sciences at the University of Aveiro. Martijn van der Steen is an Endowed Professor in Public Administration at the Erasmus University Rotterdam and Associate Dean and Deputy Director at the Netherlands School of Public Administration (NSOB). Zeger van der Wal is an Endowed Professor in Public Administration at Leiden University and Associate Professor at the Lee Kuan Yew School of Public Policy of the National University of Singapore (NUS). I IntroductIon