Politicians, Bureaucrats and Leadership in Organizations Lessons from Regional Planning in France June Burnham French Politics, Society and Culture Series General Editor: Robert Elgie, Paddy Moriarty Professor of Government and International Studies, Dublin City University France has always fascinated outside observers. Now, the country is undergoing a period of profound transformation. France is faced with a rapidly changing international and European environment and it is having to rethink some of its most basic social, political and economic orthodoxies. As elsewhere, there is pressure to conform. And yet, while France is responding in ways that are no doubt familiar to people in other European countries, it is also managing to maintain elements of its long-standing distinctiveness. Overall, it remains a place that is not exactly comme les autres. This new series examines all aspects of French politics, society and culture. In so doing it focuses on the changing nature of the French system as well as the estab- lished patterns of political, social and cultural life. Contributors to the series are encouraged to present new and innovative arguments so that the informed reader can learn and understand more about one of the most beguiling and compelling of all European countries. Titles include: Sylvain Brouard, Andrew Appleton, Amy G. Mazur (editors) THE FRENCH FIFTH REPUBLIC AT FIFTY Beyond Stereotypes June Burnham POLITICIANS, BUREAUCRATS AND LEADERSHIP IN ORGANIZATIONS Lessons from Regional Planning in France Jean K. Chalaby THE DE GAULLE PRESIDENCY AND THE MEDIA Statism and Public Communications Pepper D. Culpepper, Bruno Palier and Peter A. Hall (editors) CHANGING FRANCE The Politics that Markets Make Gordon D. Cumming FRENCH NGOs IN THE GLOBAL ERA France’s International Development Role David Drake FRENCH INTELLECTUALS AND POLITICS FROM THE DREYFUS AFFAIR TO THE OCCUPATION David Drake INTELLECTUALS AND POLITICS IN POST-WAR FRANCE Graeme Hayes ENVIRONMENTAL PROTEST AND THE STATE IN FRANCE February 26, 2009 8:32 MAC/JUN Page-i 9780230_209879_01_prexii David J. Howarth THE FRENCH ROAD TO EUROPEAN MONETARY UNION Andrew Knapp PARTIES AND THE PARTY SYSTEM IN FRANCE A Disconnected Democracy? Michael S. Lewis-Beck (editor) THE FRENCH VOTER Before and After the 2002 Elections John Loughlin SUBNATIONAL GOVERNMENT The French Experience Mairi Maclean and Joseph Szarka FRANCE ON THE WORLD STAGE Mairi Maclean, Charles Harvey and Jon Press BUSINESS ELITES AND CORPORATE GOVERNANCE IN FRANCE AND THE UK Susan Milner and Nick Parsons (editors) REINVENTING FRANCE State and Society in the Twenty-First Century Gino G. Raymond THE FRENCH COMMUNIST PARTY DURING THE FIFTH REPUBLIC A Crisis of Leadership and Ideology Sarah Waters SOCIAL MOVEMENTS IN FRANCE Towards a New Citizenship Reuben Y. Wong THE EUROPEANIZATION OF FRENCH FOREIGN POLICY France and the EU in East Asia French Politics, Society and Culture Series Standing Order ISBN 978–0–333–80440–7 hardcover Series Standing Order ISBN 978–0–333–80441–4 paperback (outside North America only) You can receive future titles in this series as they are published by placing a standing order. Please contact your bookseller or, in case of difficulty, write to us at the address below with your name and address, the title of the series and the ISBN quoted above. Customer Services Department, Macmillan Distribution Ltd, Houndmills, Basingstoke, Hampshire RG21 6XS, England February 26, 2009 8:32 MAC/JUN Page-ii 9780230_209879_01_prexii Politicians, Bureaucrats and Leadership in Organizations Lessons from Regional Planning in France June Burnham Researcher, June Burnham & Associates Formerly Senior Lecturer in European Government Middlesex University, UK February 26, 2009 8:32 MAC/JUN Page-iii 9780230_209879_01_prexii © June Burnham 2009 All rights reserved. No reproduction, copy or transmission of this publication may be made without written permission. No portion of this publication may be reproduced, copied or transmitted save with written permission or in accordance with the provisions of the Copyright, Designs and Patents Act 1988, or under the terms of any licence permitting limited copying issued by the Copyright Licensing Agency, Saffron House, 6-10 Kirby Street, London EC1N 8TS. Any person who does any unauthorized act in relation to this publication may be liable to criminal prosecution and civil claims for damages. The author has asserted her right to be identified as the author of this work in accordance with the Copyright, Designs and Patents Act 1988. First published 2009 by PALGRAVE MACMILLAN Palgrave Macmillan in the UK is an imprint of Macmillan Publishers Limited, registered in England, company number 785998, of Houndmills, Basingstoke, Hampshire RG21 6XS. Palgrave Macmillan in the US is a division of St Martin’s Press LLC, 175 Fifth Avenue, New York, NY 10010. Palgrave Macmillan is the global academic imprint of the above companies and has companies and representatives throughout the world. Palgrave® and Macmillan® are registered trademarks in the United States, the United Kingdom, Europe and other countries. ISBN-13: 978–0–230–20987–9 hardback ISBN-10: 0–230–20987–4 hardback This book is printed on paper suitable for recycling and made from fully managed and sustained forest sources. Logging, pulping and manufacturing processes are expected to conform to the environmental regulations of the country of origin. A catalogue record for this book is available from the British Library. A catalog record for this book is available from the Library of Congress. 10987654321 18 17 16 15 14 13 12 11 10 09 Printed and bound in Great Britain by CPI Antony Rowe, Chippenham and Eastbourne February 26, 2009 8:32 MAC/JUN Page-iv 9780230_209879_01_prexii Contents Acknowledgements vii List of Tables and Figures viii List of Abbreviations x 1 Political Leaders and Bureaucratic Organizations 1 Political leadership in government 1 Assessing the impact of political leaders 9 Politicians, bureaucrats and regional planning in France 17 2 Restructuring Bureaucratic Organizations 24 The Service de l’aménagement du territoire 24 The Direction de l’aménagement du territoire 30 An ephemeral ministry 37 The creation of DATAR 38 Conclusions 41 3 Links to the Leadership: Positional or Personal? 45 The importance of location 46 An empirical assessment of the effects of location 55 The effects of economic contingencies 61 Leadership interest: an empirical analysis 63 Conclusions 69 4 Ensuring Responsiveness, Competence and Loyalty 72 Choosing the top official 73 Steering the agency’s recruitment and activities 84 Conclusions 96 5 Steering Policy through Administrative and Financial Tools 99 The administrative tools 100 The financial tools: budgets, funds and contracts 117 Conclusions 134 v February 26, 2009 8:32 MAC/JUN Page-v 9780230_209879_01_prexii vi Contents 6 Roads Planning and Funding 137 The chief bureaucratic players 137 Road planning decisions compared 141 Exercising political leadership 158 Conclusions 167 7 Regionalization 171 The chief bureaucratic players and the élus 172 Regionalization decisions compared 177 Exercising political leadership 196 Conclusions 204 8 Lessons from Regional Planning in France 208 Political leadership and bureaucratic organizations 209 Politicians, bureaucrats and leadership 223 Appendix I: Political leaders 1944–2008 231 References 238 Index 255 February 26, 2009 8:32 MAC/JUN Page-vi 9780230_209879_01_prexii Acknowledgements I would like to thank the following people and organizations who con- tributed to the book: Jack Burnham, Robert Elgie, Klaus Goetz, Steven Kennedy, Ed Page, Anne Stevens and Mark Thatcher, for reading the draft text and giving wise advice; BLPES at the LSE; DATAR Docu- mentation Centre, Paris; DATAR Invest in France, London office; the library of the Institut d’Etudes Politiques, Paris; the library of the Insti- tut d’Etudes Politiques, Grenoble; and Richard Rose for providing or helping me find documents; Christel Alvergne, Anne Azam-Pradeilles, Jean-Luc Bodiguel, Jean-Claude Boual, Pierre Bauby, Jennifer Coulon, Patrice Diebold, Andreas Faludi, Brigitte Fargevieille, Claude Husson, George Jones, Simon Lee, Chantal Lombard, Howard Machin, Honora Naughton, Jean-Luc Obin, Pierre Perrod, Graham Phillips, Michel Savy, Michel Senimon, Katherine Varin and Evelyne Will for encouraging or advising or informing me about French bureaucracies. They and many others have been very tolerant. June Burnham vii February 26, 2009 8:32 MAC/JUN Page-vii 9780230_209879_01_prexii List of Tables and Figures Tables 2.1 ‘Political leaders’ in the stages to DATAR 25 3.1 Organizational location of ministerial responsibility 48 3.2 Comparator statements on reputational power 58 3.3 DATAR’s reputational power 1963–80 59 3.4 DATAR’s reputational power 1981–92 60 3.5 Comparator statements on leadership interest 64 3.6 Presidential interest in aménagement du territoire 65 3.7 Prime Ministerial interest in aménagement du territoire 1963–81 66 3.8 Prime Ministerial interest in aménagement du territoire 1981–92 67 4.1 Top officials at DATAR and DIACT 74 4.2 Interdisciplinary appointments at DATAR’s Paris office (schematic) 81 4.3 Budgetary posts under different leaders 86 4.4 Permanent, contracted and seconded officials 87 4.5 Training of policy staff at DATAR 91 4.6 Grands corps membership of senior officials 92 4.7 Corps membership of seconded officials 94 5.1 Meetings and decisions of CIAT and CIADT 101 5.2 Interministerial committees and councils 110 5.3 The budget for aménagement du territoire