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Dnbinistración Pública Traducción Revista de ~dnBinistración Pública Traducción Mary Lapidus Fernanda Meraz Araceli Carranza Corrección Domingo Cabrera Noé Pérez Bello He Diseño DomingoCabrera .. Revista de Administración Pública Propiedad de: Instituto Nacional de Administración Pública Ave. Countrv Club Núm. 208, México 21, D.F. Tel.: 5-49-10-19 Impreso y hecho en México I Prin ted ano made in Mexico INSTITUTO NACIONAL DE ADMINISTRACION PUBLICA REVISTA DE ADMINISTRACION PUBLICA Director Omar Guerrero Asistente Isabel Sánchez Administración editorial Javier Muñoz Quiroga INSTITUTO NACIONAL DE ADMINISTRACION PUBLICA Sección Mexicana del Instituto Internacional de Ciencias Administrativas CONSEJO DIRECTIVO Luis Garc ía Cárdenas Presidente Ignacio Pichardo Pagaza Isauro Cervantes Cortés Vicepresidentes Fernando Solana Alejandro Carrillo Castro José Chanes Nieto Lidia Camarena Adame Osear Reyes Retana, Jr. Adolfo Lugo Verduzco Manuel Uribe Castañeda Consejeros Yolanda de los Reyes Tesorera Coordinación de Investigación Roger Yván Recio Z. , Cipriano Flores Cruz Secretario Ejecutivo Coordinación de Docencia José Luis Calderón A. Coordinación de Promoción Estatal Laura Guadalupe Gutiérrez Coordinación de Relaciones Internacionales Erika Dóring Hermosillo Coordinación de Difusión Javier Muñoz Quiroga Coordinación de Administración Blanca Desentis de Zermeño INSTITUTO NACIONAL DE ADMINISTRACION PUBLICA MIEMBROS FUNDADORES: Antonio Carrillo Flores Gabino Fraga Gilberto Loyo Jorge Gaxiola Rafael Mancera Ortiz José Iturriaga Ricardo Torres Gavtán Antonio Martínez Báez Raúl Salinas Lozano Lorenzo Mayoral Pardo Enrique Caamaño Alfonso Noriega, hijo Daniel Escalante Manuel Palavicini Raúl Ortiz Mena Jesús Rodríguez y Rodríguez Rafael Urrutia Millán Andrés Serra Rojas José Attolini Catalina Sierra Casasús Alfredo Navarrete Gustavo R. Velasco Francisco Apodaca Alvaro Rodríguez Reyes Mario Cordera Pastor CONSEJO DE HONOR: Gabino Fraga Gustavo Martínez Cabañas Andrés Caso CONTENIDO Presentación 11 ESTUDIOS GENERALES Problemas de la Historia de la Administración Guy Thui//ier y Jean Tu/ard 15 ESTUDIOS DE CASO El Estado y la Administración en la Epoca de la Dinastía Sasánida Arthur Christensen 25 El Califato Musulmán Maurice Gaudefroy-Demombynes 65 La Administración Pública en el Califato Abbasida Phi/iph Hitti 79 La Organización Social y Forma de Gobierno de los Antiguos Mexicanos Ada/fa Bande/ier 89 Elites Administrativas del Antiguo Régimen. Preludio a la modernización en Francia, Prusia y Rusia Jo/m Armstrong 133 El Régimen Histórico de las Burocracias Occidentales. Notas sobre el caso Frances Pierre Legendre 167 TESTIMONIOS HISTORICOS El Libro de los Visires y los Gobernadores Sari Mehmed Pasha 197 La revista de adminisb'ación pública número 49 se terminó de imprimir el día 15 de marzo de 1982 en los talleres de Negativos Multicolor, S. A. de C. V., en República de Colombia núm. 6, México 1, D. F., Tel. 526-29-06. El diseño y cuida­ do de la edición estuvo a cargo de la Coordina­ ción de Difusión deIINAP. El ti raje fue de 2,000 ejemplares. PRESENTACION El número 49 de la Revista de Administración Pública cierra una colección de trabajos relativos a la historia de la administración pública, que ha tenido como propósito acercarnos al todavía poco conocido terreno del desarrollo de los organismos gubernamentales. LA RAP contempla en su sección de estudios generales un artículo rela­ tivo a las relaciones entre la historia y la administración, de los franceses Thuillier y Tulard. La sección de estudios de caso comienza con el análisis .del Estado y la administración pública sasánidas, obra de Christensen, y fun­ ge como digno proemio a dos interesantes trabajos sobre la administración del Imperio califal: nos referimos al de Gaudefroy-Demombynes sobre el califato musulmán y el correspondiente a Hitti acerca de la administración pública abbasida. Sigue un valioso trabajo sobre la administración tenochca, cuyo autor es Adolfo Bandelier, y concluye con dos artículos sobre la admi­ nistración de la monarqu ía absoluta, el primero de Armstrong sobre la mo­ dernización en Francia, Prusia y Rusia, y el segundo de Legendre acerca de la burocracia francesa. Finalmente, un brillante y sólido documento sirve de testimonio histó• rico: se trata del Libro de los Visires y Gobernadores de Sari Mehmed Pasha. Este número, lo mismo que los cuatro precedentes, estuvieron encamina­ dos a proporcionar a los lectores un cúmulo de documentos que hemos juz­ gado necesarios para el conocimiento básico de la administración pública en su desenvolvimiento histórico. Confiamos en haber alcanzado, en lo funda­ mental, nuestro propósito. PROBLEMAS DE LA HISTORIA DE LA ADMINISTRACION • Guy Thuillier y Jean Tulard de traicionar mi libertad. Muchos de los fun­ cionarios de Maupassant en Valéry vivieron de este modo honorable y aceptado por todos, Abramos un libro que un miembro de la Aca­ pero sin apartarse de los grandes cuerpos del demia Francesa consagró completa y reciente­ Estado: Guerra, Marina, Finanzas, Minas, mente a sus recuerdos. Es de sumo interés Consejo de Estado, Negocios Extranjeros, Tri­ porque está escrito por M. Paul Morand: "me bunal de Cuentas, etcétera. Las escuelas pre­ veo abriendo un sobre de la NRF -el primer pararon formatos de las instituciones en los cheque de Gallimard·- contento y al mismo cuales el Estado era la fe, la ley y el concurso, tiempo apurado, pues no había recibido nunca una suerte de entrar en el palco. El Estado más salario que el del Estado, tuve la impresión pagaba poco, pero este dinero rend ía de algu­ na forma. Este no era el dinero de otros, nadie habia tocado las seis unidades de oro mensua­ les que me fueron concedidas durante diez Reporte sintético presentado en el Coloquio sobre la his­ toria de la administración francesa después de 1800, orqa­ años consecutivos, al menos hasta 1918, todas nizado el 4 de marzo de 1972 en París por el Instituto nuevas del Banco de Francia". Francés de Ciencias Administrativas y la Escuela Práctica de Altos Estudios. Apareció publicado originalmente en la Revista Internacional de Ciencias Administrativas, vol He ah í en una obra muy antigua, en aparien­ 38, numo 2, 1972. Traducción de Félix Rosas. cia, las preocupaciones que hacen reunirnos 16 REVISTA DE ADMINISTRACION PUBLICA hoy: esta obra lleva por título Serenisima Re· der de una administración pletórica que se pública y da útiles indicaciones sobre la meno rige bajo ciertas directrices donde es necesario talidad de un funcionario de la guardia de la quizás buscar la razón de un hecho. No podre­ Primera Guerra Mundial que prueba la diver­ mos concluir o aplicar las mismas constatacio­ sidad de las fuentes; por la cual debe hacérsele nes para las revoluciones del siglo XX, ¿yen llamar un historiador de la administración. el lenguaje revolucionario reciente el término de burocrático no es considerado como la Si consideramos, en un principio, este re­ peor injuria? porte como una obra que depende de la histo­ ria literaria es para paliar la ausencia de esta Tributaria a su regreso de las disciplinas disciplina en la confrontacióngtue ustedes han evocadas, la historia <.<e la administración les propuesto. Su tema: "La hisforia de la admi­ exige probablemente, más de lo que les puede nistración después de 1800" (puede remon­ dar. Ella no puede ignorar la sociología o la tarse a Colbert, pero él precisa un 1imite en el historia religiosa (en razón de comparaciones tiempo) aborda un campo que conoció cierto que se imponen con la organización de la Igle­ auge entre 1815 y 1848. antes de subir una sia). larga cuesta. La historia de la administración reencontró un lugar reservado en los programas Lamentamos que M. Wagnerno haya podido de la licenciatura en derecho desde 1962; los participar en este debate sobre el vocabulario artículos y obras de M. Lucien Mehl, de M. administrativo, ya que pudo haber aportado Guy Thuillier y de M. Pierre Legendre ponen valiosas observaciones. especial atención en ella, por lo cual no per­ manece al menos como una materia descono­ No es extraño que con la historia de la ad­ cida. ministración sucedió lo mismo que con la evo­ lución artística, ausente igualmente de este Las exposiciones vistas nos dan luz para coloquio. El peso de las disposiciones estatales entender las dos facetas de la historia de la jugaron un papel importante en la evolución administración: suministra a las otras discipli­ del siglo XIX y continúan aún hoy ejerciendo nas hipótesis de trabajo y utiliza métodos para su influencia si se considera una exposición sus propios fines. Puede considerarse. en efec­ sobre la creación artística en Francia de 1860 to, como un elemento de explicación capital a 1972. Se podría también subrayar su peso de la historia poi ítica o económica de Francia, o influencta en la arquitectura civil. Es preci­ un ejemplo: los especialistas de la revolución samente la misma riqueza de su campo de atacan más a los hombres (Mirabeau, Dantóri, acción lo que explica el retardo en Francia de Robespierre) o a las masas (los campesinos), la historia administrativa y enuncia el problema que a la administración puesta en práctica de la autonomía de esta confusa disciplina. después de Por lo tanto es en la maqui­ 1789. é Cuá! debe ser S'J objeto? ¿Cuáles sus oríge• naria burocrática que Saint Just descubre, en nes? zOué métouos debe emplear? Responder • octubre de 1793, el principal freno de la acción a estas tres preguntas es demostrar la posibi­ revolucionaria: más que en la devaluación de lidad de escribir una historia de la administra­ lo asignado o en la insurrección; es en el po- ción, esafi rmar la autonom ia de esta discipli na. G. THUILLIER y J. TULARD PRDBLEMAS DE LA HISTORIA DE LA ADMINISTRACION 17 11 Como un conjunto de individuos, la admi­ nistración no puede ser menos que un cuerpo social con sus leyes propias y comunes a todos los cuerpos sociales. Citemos un solo aspecto: ¿Qué es la Administración? En primer lugar, es un hecho frecuente la influencia de la carre­ un conjunto de reglamentos, órdenes y circu­ ra del padre en los hijos y la esposa en el inte­ lares.
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