BUREAUCRACY FORDEMOCRACY THEDYNAMICSOFEXECUTIVE- BUREAUCRACYINTERACTION DURINGGOVERNMENTALTRANSITIONS Ledivina V. Carifio q All Rights Reserved College of Public Administration, University of the Philippines International Center for Economic Growth Philippine Institute for Development Studies Printed in the Philippines 1992 RP-6-92-1000 ISBN 971-128-018-3 To Ben, Benjie and Hiyasmin who keep me alive and loved through all the struggles and transitions of my life Table of Contents Dedication Table of Contents Foreword Acknowledgment Chapter 1. THE EXECUTIVE-BUREAUCRACY STRUGGLE: THE THEMES AND STRATEGIES Lessons from the Literature ........................................................................ 3 Distribution of Political Power in Government: Executive Domination of or Sublation by the Bureaucracy .......... 3 Distribution of Power in Society: Democracy and Authoritarianism .................................................... 6 The State and Executive-Bureaucracy Interaction .......................... 10 Linking the Bureaucracy and the Society ........................................ 15 Administrative Development: Democratizing the Bureaucracy ......................................................... 17 Scope and Coverage ..................................................................................... 18 The Plan of the Book .................................................................................... 20 Chapter 2. THE EXECUTIVE AND THE BUREAUCRACY UNDER NORMAL SUCCESSIONS: SOME NATIONAL PATrERNS Models of Bureaucratic Subordination ...................................................... 23 Great Britain ......................................................................................... 24 The United States ................................................................................ 26 Other Experiences of Normal Successions ................................................ 32 The Dominican Republic After Trujillo ........................................... 32 Pre-Pinochet Chile .............................................................................. 33 Mexico ................................................................................................... 34 Saskatchewan State in the 1940s ....................................................... 36 Preliminary Comparison ............................................................................. 37 Chapter 3. THE EXECUTIVE AND THE BUREAUCRACY UNDER NORMAL SUCCESSIONS: THE PHILIPPINES Philippine Political and Administrative History ..................................... 39 The Spanish Period ............................................................................. 40 The American Period .......................................................................... 41 The Japanese Interlude ....................................................................... 4_ VIII The Philippine Republic, 1946-1972 ........................................................... 44 The Process of Normal Transition .............................................................. 46 The Bureaucracy Under Macapagal ................................................. 48 Marcos' Democratic Period (1965-1972 ............................................ 58 Factors Hospitable to Execu_ve Ascendancy ................................. 64 Comparative Analysis .................................................................................. 66 Chapter 4. EXECUTIVE-BUREAUCRACY INTERACTION UNDER AUTHORITARIAN SUCCESSIONS: KOREA AND THE PHILIPPINES Korea Under Park Chung Hee .................................................................... 71 Park's Relationship with the Bureaucracy ............:.......................... 71 Changes Evident in the Bureaucracy ............................................... 75 The Philippines Under Martial Law .......................................................... 76 Major Thrusts of the Authoritarian Regime ..........................i......... 76 The Executive-Bureaucracy Relationship ........................................ 80 The System on the Eve of Marcos' Fall ............................................. 84 Preliminary Analysis .................................................................................... 86 Chapter 5. EXECUTIVE-BUREAUCRACYINTERACTION UNDER AUTHORITARIAN SUCCESSIONS: THAILAND The Political Record Prior to 1932 .............................................................. 90 The Government Created by the Coup d'Etat of 1932 .............................. 92 The Rule of the Bureaucracy ....................................................................:.. 95 The Key Constituency ........................................................................ 99 Dealing with Potential Rivals ............................................................ 102 New Seekers of Political Power ........................................................ 104 Toward the Democratic Development of the Bureaucracy 107 Comparative Analysis .................................................................................. 109 Chapter 6. THE EXECUTIVE-BUREAUCRACY NEXUS: TOWARD REDEMOCRATIZATION Bangladesh Under Mujib ............................................................................. 114 Nicaragua Under the Sandinistas .............................................................. 119 Corazon Aquino and the Bureaucracy ...................................................... 127 Changes in Personnel and Organization ......................................... 128 Employee Conduct and Behavior ..................................................... 133 Why a Dominak_l Bureaucracy? ...................................................... 135 Comparative Analysis .................................................................................. 138 IX Chapter 7. TRANSITIONS, BUREAUCRACY AND DEMOCRACY The Transition Problem ................................................................................ 143 Executive Actions ....._.......................................................................... 144 Weapons of the Civil Service ............................................................. 149 The Role of Other Political Forces .................................................... 151 Patterns of Executive-Bureaucracy Relationships ................................... 152 Executive Ascendancy and Bureaucratic Subordination .............. 153 Bureaucratic Co-Equality or Sublation of the Executive ............... 156 Toward Democracy ...................................................................................... 160 Reflecting Democracy ......................................................................... 161 Bureaucracy Against Democratization ............................................ 165 Bureaucracy for Democracy .............................................................. 166 BIBLIOGRAPHY General References .............................................................................. 169 Bangladesh ........................................................................................... 171 Chile ...................................................................................................... 172 Dominican Republic ........................................................................... 172 Great Britain ......................................................................................... 172 Korea ..................................................................................................... 173 Mexico ................................................................................................... 173 Nicaragua ............................................................................................. 173 The Philippines .................................................................................... 175 Saskatchewan State, Canada ............................................................. 181 Thailand ................................................................................................ 181 The United States ................................................................................ 182 All Other Countries ............................................................................ 183 INDEX ...................................................................................................... 185 ZI Foreword At no time in history can this volume be considered more timely than today when tremendous transitions in governments around the world are taking place or have recently taken place. Such transitions which usually witness the realignment of interests and loyalties bring to the fore a particular dimension in public governance that is often felt but rarely documented in a comprehensive manner - - the struggle between the political executives and the bureaucracy. Since the principal instrument used by a political leadership in implementing its vision for the country is the civil service or bureaucracy, the relationship between the political leadership and the bureaucracy therefore becomes crucial if the former is to succeed in attaining the mission it has initially set OUt to do. How does a new government make use of the existing bureaucracy in its process of governance? How does the bureaucracy respond to the new leadership? What kind of relationship exists between the new leadership and the bureaucracy during the critical period of transition? How does this relationship contribute to the realization of a truly democratic society? These are some of the questions