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Die Rol Van Die Franse Ministeriele Cabinet: 'N DIE ROL VAN DIE FRANSE MINISTERIELE CABINET: 'N VERTOLKING deur CHRISTELLE JEANETTE AURIACOMBE voorgele luidens die vereistes vir die graad DOCTOR LITTERARUM ET PHILOSOPHIAE in die vak PUBLIEKE ADMINISTRASIE aan die UNIVERSITEIT VAN SUID-AFRIKA PROMOTOR: PROF D F S FOURIE JUNIE 1996 DAN KBETUIGI NGS Ten eerste wil ek my Skepper bedank vir die geleenthede en vermoens wot ek ontvang het, en wot my in stoat gestel het om hierdie proefskrif te voltooi. Ek bedank graag al die cabinetslede en staatsamptenare met wie ek onderhoude gevoer het as deel van die navorsing vir hierdie proefskrif, vir hulle tyd, seker een van die waardevolste gawes wot enige mens kan gee. Hulle hulp was onontbeerlik in die uitvoering van hierdie navorsing. Ek is dank verskuldig aan Marie-Jose Frichement wot my met nuttige advies bedien het en my gehelp het om sommige van die burokratiese eienaardighede in Franse biblioteke te oorkom. Isabel Boussard was baie hulpvaardig tydens die proses van onderhoudsvoering met verskillende amptenare, en ook met die verwerking van statistiese en sosiologiese gegewens. Ek bedank ook graag vir Anthonie Viljoen, Uitvoerende Direkteur van ·sAIPA wot op geduldige wyse die proefskrif deurgelees en vakkundig daarop kommentaar gelewer het. Prof Koos Pauw het my bygestaan deur spesifieke aspekte van die proefskrif met my te bespreek en my tydige aanmoediging te gee in die afhandelingstadium. Eunice Reyneke het nie slegs die taalgebruik in die proefskrif versorg nie, moor het ook die bladsyuitleg en grafiese voorstellings gedoen. Glenn Babb het die Franse terme in die Glossarium goedgunstiglik nagesien en Margaret Spector was met die vertolking van Franse bronne behulpsaam. Daarbenewens, kan ek nie nalaat om Proff S X Hanekom en D Marais, my voormalige kollegas onder wie ek hierdie studie begin het, se bydrae te erken nie. Ek is veral dank verskuldig aan my promotor, Prof Deon Fourie, wot nadat ek reeds met die studie begin het, die leiding moes oorneem. Sy deeglike wetenskaplike leiding en geduld gedurende die verloop van die studie was van onskatbare waarde. Ek bedank my ouers, ander familielede en vriende vir hulle volgehoue ondersteuning en aanmoediging. Mes recherches sur divers aspects de la po/itique et de /'administration franr;:aises, menees ces dix dernieres annees, m'ont accapares 6 tel point que je me retrouve avec bien des dettes envers ma famille. Je tiens 6 remercier en particulier Jean-Luc, Johan et Matthieu. Sans eux, ii n 'y aurait eu aucune recherche, aucun enseignement et aucune these. OPSOMMING In die politieke en administratiewe stelsel van Frankryk bestaan die ministeriele cabinet as 'n instelling eiesoortig aan Frankryk, met die doel om ministers individueel in stoat te stel om die politieke wil van die regering ten uitvoer te bring. Die gesag van die cabinets is kontroversieel en word enersyds geprys en andersyds gekritiseer. Die Franse ministeriele cabinet neem die plek in van 'n permanente departementshoof. en bestaan uit 'n groep persoonlike personeel wot aan elke minister verbonde is. Sy funksie is om horn te ondersteun en te adviseer sodat hy 'n ingeligte oordeel kan fel voordat hy besluite neem, en ook om te verseker dot sy beleid geformuleer, verduidelik en uitgevoer word. Die ministeriele cabinet was oorspronklik 'n politieke instelling wot in die algemeen uit politieke bondgenote van die minister bestaan het. In die Vyfde Republiek het dit egter ontwikkel tot 'n formele instelling. Dit het 'n onontbeerlike rol begin speel om die skakeling van die politieke stelsel met die administratiewe stelsel te bewerkstellig en ko6rdinering te verseker. Net soos die ministers, funksioneer die cabinets op daardie kruispunte waar verskeie politieke en administratiewe instellings met mekaar skakel. Hulle vervul gevolglik 'n sleutelrol om skakeling te fasiliteer en samewerking te bewerkstellig. Ministeriele cabinets verbind dus die politieke partye, die Parlement, belangegroepe en drukgroepe met ministeries (staatsdepartemente) as uiNoerende instellings. In hierdie proefskrif word die funksionering van die cabinets ontleed en hulle besondere rol in die Franse politieke en administratiewe stelsel vertolk. Die skrywer het bevind dot, waar cabinets effektief funksioneer, hulle doelmatige en doeltreffende meganismes is om die verhouding tussen die politieke en administratiewe stelsel in die bree te versterk tot voordeel van goele regering. Cabinets wot egter nie effektief funksioneer nie, lei tot 'n verswakking in die verhoudinge in en tussen ministeries met nadelige gevolge vir die regering. Voorts is bevind dot die cabinets 'n belangrike rol vervul om die kloof tussen die minister en die amptenare in sy ministerie te oorbrug. 'n Cabinet kan dus 'n minister se loopbaan bevorder of benadeel. SUMMARY The French political and administrative system includes the ministerial cabinet, a uniquely French institution that exists with the purpose of enabling individual ministers to execute the political will of the government. The authority of the cabinets is either praised or criticised. The French ministerial cabinet substitutes for a permanent head of a deportment, and consists of a group of personal staff serving each minister. Its function is to support and advise him, in order to enable him to make informed judgements before taking decisions, and also to ensure that his policy is formulated. clarified and executed. In its original form the ministerial cabinet was a political institution, generally consisting of political allies of the minister. However. in the Fifth Republic it was transformed into a formal institution. It acquired an indispensable role in effecting liaison and co-ordination of the political system with the administrative system. The cabinets, like the ministers, function at the intersections of political and administrative institutions. Thus they play a key role in facilitating liaison. Hence. ministerial cabinets link the political parties, Parliament, interest groups and pressure groups, with the ministries (state deportments) as executive institutions. This thesis consists of an analysis of the functioning of cabinets, and interprets their particular role in the French political and administrative system. The author has found that where cabinets function as efficient and effective mechanisms, they strengthen the relationship of the political and administrative systems in general to the advantage of good governance. Ineffective cabinets, however. impair the relations within and among ministries to the disadvantage of the government. It has also been established that cabinets play an important role in bridging the gap between the minister and the officials in his ministry. A cabinet can thus improve or damage a minister's career. KEYWORDS French government and politics French executive political / administrative relationships political advisors French prime minister French president French 1958 Constitution French parliament French civil service A_an·v •. -. French cabinets corps political office-bearers top administrative officials public administration ministers French political institutions INHOUDSOPGAWE TABELLE, DIAGRAMME EN VOORSTELLINGS viii GLOSSARIUM x HOOFSTUK 1: DIE MINISTER SE CABINET - SKAKEL OF STRUIKELBLOK? 1 . 1 IN LEIDING 1 1.2 PROBLEEMSTELLING 9 1.3 KEUSE VAN STUDIEONDERWERP 10 1.4 BENADERING TOT DIE STUDIE 14 1.5 HIPOTESE MET BETREKKING TOT DIE STUDIE 15 1.6 DOELWITVAN STUDIE 16 1. 7 AFBAKENING VAN STUDIETYDPERK 16 1.8 INLIGTINGINSAMELING EN NAVORSINGSMETODE 17 1.8. l INLIGTINGINSAMELING 17 1.8.2 NAVORSINGSMETODE 18 1.8.2. l Literatuurstudie 18 1.8.2.2 Onderhoude 19 1.9 VERWYSINGSTEGNIEK 23 1.10 TERME EN WOORDOMSKRYWINGS 24 1.10.l CABINET 24 1.10.2 BUROKRASIE 25 1.10.3 CORPS 25 1.10.4 MINISTERIE 26 1.10.5 SENTRALE ADMINISTRASIE, SERVICES EN ADMINISTRASIE 27 l, 10.6 REGIME 27 1.10.7 POLITIEK EN BELEID 28 l, 10.8 TOESIG (VE/LLER) 28 l ' 11 UITEENSETIING VAN HOOFSTUKKE 29 /nhoudsopgawe Bladsy ii HOOFSTUK TWEE: DIE MILIEU VAN DIE MINISTER 2. l INLEIDING 32 2.2 GRONDWET VAN DIE VYFDE REPUBLIEK 34 2.3 PRAKTYK VAN DIE VYFDE REPUBLIEK 37 2.3. l PRESIDENT 37 2.3.2 PRESIDENT SE PERSOONLIKE PERSONEEL 44 2.3.3 EERSTE MINISTER 48 2.3.4 PARLEMENT 54 2.3.4. l Beklemtoning van die skeiding tussen uitvoerende en wetgewende mogte 54 2.3.4.2 Beperkings betreffende die tye woorop die Porlement mag vergoder 55 2.3.4.3 Streng beperkings is ingestel betrettende die Porlement se wetgewende mogte 56 2.3.4,4 Die Porlement se mag om die regering uit die kussings te lig, is streng aon bonde gele 56 2.3.4.5 Die regering mag 'n wetsontwerp tot 'n dringende soak verkloor 57 2.3.4.6 Die regering mag oandring op 'n enkele stem om sy eie teks te oonvoor 58 2.3.4.7 Die regering mag 'n beroep op die Porlement doen om wetgewing uit te voordig 58 2.3.5 DRUKGROEPE 60 2.3.6 WETGEWING IN DIE VYFDE REPUBLIEK 61 2.3.6. 1 Wette 62 2.3.6.2 Regulosies 62 2.3.6.3 Verordeninge en memoranda 64 2.3.7 INSTELLINGS VIR BELEIDBEPALING 64 2.3.7. 1 Consei/ des ministres 64 2.3.7.2 Consei/ de cabinet 65 2.3.7.3 Comites interministeriels 66 2.3,8 SAMESTELLING VAN DIE REGERING 67 2.4 SAMEVATTING EN EVALUERING 73 lnhoudsopgowe Bladsy iii HOOFSTUK DRIE: MINISTERS AS POLITIEKE EN ADMINISTRATIEWE HOOFDE VAN MINISTERIES 3. l IN LEIDING 77 3.2 MINISTERIELE ROLLE IN BEPAALDE WESTERSE DEMOKRASIEE 78 3.2.l POLITIEKE EN ADMINISTRATIEWE VERHOUDINGE TUSSEN MINISTERS EN HOOGGEPLAASTE AMPTENARE 80 3.2. l. l Britse ervaring 80 3.2.1.2 Europese en Amerikoonse ervaring 82 3.2.1.3 Verhoudinge tussen ministers en amptenare in Suid-Afrika 83 3.2.2 HUIDIGE ROLLE VAN MINISTERS EN TOPAMPTENARE IN SUID- AFRIKA 85 3.2.3 NUWE ROLLE VIR DIE POLITIEKE ELITE 87 3.3 VERSKILLENDE MINISTERIELE STYLE 87 3.3.l MINISTERIELE STYLE IN FRANKRVK 90 3.4 MINISTERS EN HUL CABINETS 95 3.5 WERKSAAMHEDE VAN MINISTERS 99 3.5.l MINISTERS EN DIE REGERING 99 3.5.
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