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A Study of the Lebanese Bureaucracy. Edward Bitar Louisiana State University and Agricultural & Mechanical College

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A Study of the Lebanese Bureaucracy. Edward Bitar Louisiana State University and Agricultural & Mechanical College Louisiana State University LSU Digital Commons LSU Historical Dissertations and Theses Graduate School 1968 Personnel Administration in a Developing Country: a Study of the Lebanese Bureaucracy. Edward Bitar Louisiana State University and Agricultural & Mechanical College Follow this and additional works at: https://digitalcommons.lsu.edu/gradschool_disstheses Recommended Citation Bitar, Edward, "Personnel Administration in a Developing Country: a Study of the Lebanese Bureaucracy." (1968). LSU Historical Dissertations and Theses. 1379. https://digitalcommons.lsu.edu/gradschool_disstheses/1379 This Dissertation is brought to you for free and open access by the Graduate School at LSU Digital Commons. It has been accepted for inclusion in LSU Historical Dissertations and Theses by an authorized administrator of LSU Digital Commons. For more information, please contact [email protected]. This dissertation has been microfilmed exactly as received 68-10,721 BITAR, Edward, 1936- PERSONNEL ADMINISTRATION IN A DEVELOPING COUNTRY: A STUDY OF THE LEBANESE BUREAUCRACY. Louisiana State University and Agricultural and Mechanical College, Ph. D ., 1968 Political Science, general University Microfilms, Inc., Ann Arbor, Michigan PERSONNEL ADMINISTRATION IN A DEVELOPING COUNTRY A STUDY OF THE LEBANESE BUREAUCRACY A Dissertation Submitted to the Graduate Faculty of the Louisiana State University and Agricultural and Mechanical College in partial fulfillment of the requirements for the degree of Doctor of Philosophy in The Department of Government by Edward Bitar B.Sc., Louisiana Polytechnic Institute, 1958 M.A., Louisiana State University, 1962 January, 1968 ACKOWLEDGMENTS To those I have interviewd and many others with whom I have discussed problems relevant to this thesis, I extend my sincere gratitude. I am particularly grateful to my adviser, Dr. Marvin Maurer, who has so generously given of his time and patience in the preparation of this thesis. Special notes of appreciation go to Dr. Rene de Visme Williamson for his guidance during graduate school, and to my wife Martha for her encouragement and understanding. The responsibility for any shortcomings of the thesis or translations from Arabic and French is mine. ii TABLE OF CONTENTS Page ACKNOWLEDGMENT .................................................... ii LIST OF TAB L E S...................................................... viii LIST OF CHA R T S.................................................... .. ABSTRACT.......................................................... xi Chapter PART I THE LEBANESE CIVIL SERVANTS I. INTRODUCTION ........................................... 1 Statement of the Problem.................... 6 Objective............................................. 7 A Note on Sources.....................................9 II. HISTORICAL PERSPECTIVE ................................. 11 The Ottoman Per i o d ..................................11 1516-1842...................................... 12 1842-1861...................................... 14 1861-1918........................................ 17 The French Mandate..................................19 1918-1926...................................... 20 1926-1943...................................... 22 French Impact on Lebanese Administration .... 27 The Independence Period..............................30 1943-1952...................................... 31 1952-until the present ......................... 33 Summary Statement....................................38 III. THE SOCIAL SETTING......................................42 Social Structure .................................. 43 ill Chapter Page Religious Sectarianism...................... 43 Economic Factor.......................................71 The Sducational System ............................ 75 The Political System .............................. 83 Summary Statement.....................................86 PART II GOVERNMENTAL SETTING IV THE SYSTEM OF GOVERNMENT...................................90 The Executive .......................................91 The President.....................................91 The Cabinet.......................................95 The Legislature. .................... 101 The Judiciary............ 108 Summary Statement.......... 109 V BUREAUCRATIC ORGANIZATION .............................. 112 Central Administration ............................ 112 The Minister....................................113 The Director-General .......................... 115 Council of Directors-General .................. 118 Personal Staff Units .......................... 119 Field Administration................................123 The Muhafez.....................................124 Council of the Muhafazah........................127 Local Administration................................128 Summary Statement....................................132 iv Chapter Page VI GROWTH IN BUREAUCRATIC SIZE AND DEVELOPMENT OF THE ROLE OF THE S T A T E ...................................134 Under the Mandate.......................................134 During Independence.....................................137 From Scores to Thousands...............................139 Bureaucratic Costs and Expenditures.....................141 New Functions, Trends and Changes.......................143 State Functions, Security & Order, General Services. 151 Social, Economic & Development Services................ 157 Summary Statement. ...................................172 PART III THE ADMINISTRATIVE SYSTEM STRUCTURAL FEATURES AND ORGANIZATIONAL PROBLEMS VII PERSONNEL MACHINERY.........................................173 Need for Administrative Refo r m .........................174 Functions of the Civil Service Board ................ 183 Organization of the Civil Service Board................ 185 The Board...........................................186 Personnel Department ............................ 189 Preparation and Training Department................ 190 Evaluation....................................... 191 Recommendations: A Comprehensive Personnel System. 201 Summary Statement.......................................204 VIII POSITION CLASSIFICATION AND COMPENSATION ................ 207 The Rational System.....................................207 v Chapter Page The Lebanese System ......................... ..... 209 Compensation P l a n .......................................216 Allowances...............................................227 Summary Statement . 235 IX EMPLOYMENT PROCESS........................ 238 Recruitment.............................................240 Examination.............................................248 Appointment.............................................261 Promotion................................................263 Summary Statement .................................... 269 X TRAINING.................................................... 272 Pre-Entry Training.......................................275 Post-Entry Training .................................. 280 I.N.A.D..................................................284 Recommendations ................................ • 292 Summary Statement .................................... 294 XI EMPLOYEE CONDUCT AND DISCIPLINE............................. 296 Political Activity.......................................298 Discipline....................................... * • • 307 Summary Statement .................................... 321 PART IV SUMMARY AND CONCLUSION XII SUMMARY AND CONCLUSION..................................... 324 vi Page BIBLIOGRAPHY .................................................... 338 APPENDIX A MAP OF LEBANON...............................................353 VITA ............................................................... 354 vii LIST OF TABLES Page Breakdown of Lebanese Population by Communities . 50 Distribution of Religious Communities in Lebanon, 1950 (percentage of population by distrclt) .............. 52 Summary of Political Representation of the Six Major Religious Communities .......................... 61 Parliamentary Distribution of Seats Among Sects, 1929-1964............................................................................................. 62 Percentage of Higher Administrative Positions Among the Communities ................................ 68 National Income and Employed Population in Lebanon, by Sector, 1957 ................................................................................. 73 Totals of Private Schools, Students and Teachers, 1955-1962 .............................................................................................. 77 Totals of Government Schools, Students and Teachers, 1955-1962 .............................................................................................. 78 Number of Students in Higher Education, 1956-57 . 80 Number of Students in Higher Education, 1963-64 . 81 Agencies and Independent Services Under the control of the Civil Service Board .................. 114 The Ministries' Regional Offices in the Muhafazah . 126 The Ministries' Regional Offices in the Qadas ........ 129 Republic of Lebanon - Budget of the Year 1927 ........ 136 Totals of Civil Servants and their Salaries, 1937-1946.............................................................................................. 138 Totals of Permanent Civil Servants, 1950-1966................. 140 viii TABLE Page VI-4 Basic Pay of the Permanent Civil Servants, 1950; -54; -59; -64; - 6 6 ...........................143 VI-5 Totals of Basic Salaries and Allowances of the Permanent
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