ARI SALMINEN (Editor) Ethical Governance A Citizen Perspective VAASAN YLIOPISTON JULKAISUJA _______________________________ TUTKIMUKSIA 294 PUBLIC MANAGEMENT 39 VAASA 2010 III Julkaisija Julkaisuajankohta Vaasan yliopisto Joulukuu 2010 Tekijä(t) Julkaisun tyyppi Ari Salminen (toim.) Artikkelikokoelma Julkaisusarjan nimi, osan numero Vaasan yliopiston julkaisuja. Tutkimuksia, 294 Yhteystiedot ISBN Vaasan yliopisto 978–952–476–328–8 Filosofinen tiedekunta ISSN Julkisjohtamisen yksikkö 0788–6667, 1799–0793 PL 700 Sivumäärä Kieli 65101 Vaasa 145 englanti Julkaisun nimike Eettinen hallinto: kansalaisen näkökulma Tiivistelmä Teoksessa tarkastellaan eettistä hallintoa kansalaisen näkökulmasta. Mikä on kan- salaisen rooli, kun määritellään eettistä hallintoa? Hallinnon etiikkaa on tutkittu paljon, mutta kansalaisnäkökulma on toistaiseksi jäänyt harvinaisemmaksi. Poh- jimmiltaan julkinen hallinto on kansalaisia varten ja siksi kansalaisten panos on keskeistä sekä eettisen perustan määrittelyssä että eettisyyden kehittämisessä. Teos antaa eväitä kansalaisten, poliitikkojen ja virkamiesten käymälle eettiselle keskustelulle. Kirja tarkastelee eettisen hallinnon kysymyksiä, ongelmia ja haasteita teoreettisen ja empiirisen lähestymistavan avulla. Kirja jakautuu kolmeen teema-alueeseen ja seitsemään kappaleeseen. Ensimmäinen teema-alue käsittelee eettistä hallintoa hallintotieteellisen teorian ja tutkimuskeskustelun sekä vertailevan tutkimusotteen valossa. Toinen teema tar- kastelee kansalaisen ja hallinnon suhdetta ja sen empiiristä arviota. Kohteina ovat hoivaetiikka, luottamus ja integriteetin loukkaukset sekä reilu yhteiskunta ja po- liittinen osallistuminen. Osa näistä teemoista nojaa vuoden 2008 kansalaiskyse- lyyn ja vuoden 2009 nuorisokyselyyn. Teoksen kolmas teema syventyy eettisesti hyvän hallinnon yhteen vaikeimpaan kysymykseen eli korruptioon. Teos on osa tieteellistä tutkimushanketta ”Kansalaiset ensin? Eettinen hallinto kansalaisten arvioimana”, jota rahoittaa Suomen Akatemia vuosina 2008–2010. Asiasanat Hallinnon etiikka, kansalainen, eettisyyden kehittäminen V Publisher Date of publication Vaasan yliopisto December 2010 Author(s) Type of publication Ari Salminen (editor) Selection of articles Name and number of series Proceedings of the University of Vaasa. Research Papers, 294 Contact information ISBN University of Vaasa 978–952–476–328–8 Faculty of Philosophy ISSN Public Management 0788–6667, 1799–0793 P.O.Box 700 Number of Language FI–65101 Vaasa, Finland pages 145 English Title of publication Ethical Governance: A Citizen Perspective Abstract In this book ethical governance is studied from the citizens’ point of view. What is the role for the citizen in defining ethical governance? There has been a lot of research on Administrative Ethics, but taking the citizen perspective has been rare. Ultimately the administration is for the citizens and therefore the citizen in- put is central in defining the ethical basis as well as in developing ethics. The chapters of the book give material for a dialogue on ethics among citizens, political decision makers and those working in public sector organizations. The book explores the questions, problems and challenges of ethical governance through a theoretical and empirical approach. It is divided into three thematic parts and seven chapters. In the first part of the book ethical governance is studied from the point of view of public administration theory and research as well as of the comparative approach. The second theme discusses the relationship between citizens and the administra- tion and deals also with its empirical evaluation. The explored subjects are care ethics, trust and integrity violations in addition to fair society and political partic- ipation. The topics discussed here are based on the 2008 Citizen Survey and the 2009 Youth Survey. The third part of the book gives insight into one of the most crucial questions in ethical governance, mainly corruption. This book is part of the research project “Citizens First? Ethical Governance in Terms of Citizens” financed by the Academy of Finland in the years 2008–2010. Keywords Ethical governance, citizen, development of ethics VII Preface What is the role of the citizens in defining ethical governance? Can this perspec- tive be measured and quantified as well as studied from a theoretical angle? In short, can it be studied in a meaningful and objective manner? The purpose of the book is to increase awareness of ethical issues in the frame- work of ethical governance. How to engage active citizens in a public debate on ethics? More discussion on ethics is encouraged among citizens, political decision makers and those working in public sector organizations. Hopefully this book provides some ideas for the discussion. The information contained in this book can be used in improving the ethics of public organizations, preparing legislative proposals, and codifying ethical stan- dards for the government and municipalities. What is citizen perspective? In the context of governing, the citizen perspective typically covers three main topics: values, participation and responsiveness. First, as far as democratic gover- nance is concerned, ethical values in society are discussed. Secondly, an impor- tant sign of the citizens’ role in society is the availability and the use of channels for citizen participation. Thirdly, a fundamental requisite for citizens is that the wishes of the citizens are being listened to. Administrative ethics has been the subject of considerable scholarly interest and research in the last decades (e.g. Bruce 2001; Cooper 2006; Frederickson & Ghere 2005; Menzel 2005, 2007; Lawton & Doig 2006). Ethical governance forms a central part of the debate on administrative ethics. Ethics can be understood as a set of moral principles. They can be identified at individual, organizational and societal levels. Ethics, also defined as moral phi- losophy, is a strongly theoretical world of values and morals on the one hand, and on the other hand, administration is a world of decisions and actions with an orientation towards the practical. To simplify the above said: ethics searches for right and wrong while the administration must get the job done (Cooper 2001). The citizen perspective is to some amount neglected in the discourse on adminis- trative ethics. The views of citizens seem to be missing – even if administration is VIII for them and not vice versa. As a rule citizens’ views are needed, if ethical gover- nance is to develop. Citizens expect clearly and understandably explained decisions, done transparent- ly and in the “spirit of public service”. This results that public managers need eth- ical sensitivity as well as standards to behave in a responsible manner (Cooper 2006; Menzel 2001). Civil servants have the obligation to distribute resources fairly and to openly and transparently justify their choices and decisions. Studies of public administration from the citizens’ point of view could thus open up new venues for getting this important perspective to the table. Politicians and public servants inform people on compulsory matters whenever necessary. There are several government channels that enable the citizens to ad- dress their concerns. In addition public debate in the media and in other forms of communication is open for citizens. Sometimes the communication is directly with the politicians and bureaucrats, when as citizens they are being heard. The highest level of influence of the citizens is realized in a situation where not only they are being listened to, but also contribute to the decision making. The nature of morality is understood through ethical judgments. In most western countries citizens value equal opportunities, equal treatment, equality before the law, and the same services for the entire population. When it comes to ethical governance, both the integrity of the political system and good administration are emphasized. Citizens have a basic constitutional right to express their opinions as they have views on rules and norms they want to share with the community. Active com- munication between the government and the citizens is needed. Are the percep- tions of citizens on ethically good governance taken into consideration by the political decision makers? Politicians and public sector office holders should be carefully informed whether the citizens’ assessments of the quality of public ser- vices, administrative procedures and principles of the political system are positive or negative. The findings of the research project “Citizens First? Ethical Governance in Terms of Citizens” indicate that both Finnish adults as well as young people appreciate public services and the fair and just treatment of citizens. There are signs of dis- trust in politicians as well as of alienation from politics and the democratic deci- sion making process. The citizens are not very assured about the trustworthiness of politicians or their promises. However, strong confidence is rooted in institu- tions and services. According to the Finnish respondents administrative corrup- tion is controlled, even though old boy networks distort the image of the adminis- IX tration. For citizens, the most important ethical values are justice, honesty, equali- ty and reliability. (Salminen & Ikola-Norrbacka 2009a; Lähdesmäki 2010) Coherence and plan of the book Some of the previously discussed topics in addition to new topics are discussed in this book. The coherence of the ethical themes brings to light specific interpreta- tions