The European Public Servant
A Shared Administrative Identity?
Edited by
Fritz Sager and Patrick Overeem
© Fritz Sager and Patrick Overeem 2015
Cover Image: © iStock #34460612 Filograph
First published by the ECPR Press in 2015
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Table of Contents
List of Figures and Tables
vii
List of Abbreviations
ix
Contributorsxi
Acknowledgementsxiii
Part One – Searching for a European Public Servant
Chapter One – Introduction: The European Public Servant’s Shared Identity
Fritz Sager and Patrick Overeem
Chapter Two – Changing European Ideas about the Public Servant:
A Theoretical and Methodological Framework
Jos C. N. Raadschelders
3
15
Part Two – Older Notions of Public Service
Chapter Three – Serving the Public by Advising the Ruler
Joanne Paul
37
Chapter Four – A History of the Oath of Office in The Netherlands
Mark R. Rutgers
53
Part Three – The Formative Nineteenth Century
Chapter Five – Two Sides of the Same Coin: The Public Servant as a
Political Actor in Nineteenth-Century German Thought
Niels Hegewisch
75
Chapter Six – A Not-So-Statist State: The European Public Servant
and the Political Theory of Pluralism
Koen Stapelbroek
97
Chapter Seven – Traditions, Bargains and the Emergence of the Protected
Public Servant in Western Europe
Caspar van den Berg, Frits M. van der Meer and Gerrit S. A. Dijkstra
117
vi
The European Public Servant
Part Four – The Americanised Public Servant in Europe
Chapter Eight – The Role of Foreign Ideas in Identity Formation:
The Hegelian Roots of Early American Public Administration
Christian Rosser
135
Chapter Nine – The Dawn of French Administrative Science (1945–70):
A Renewed Conception of the Public Servant
Céline Mavrot
155
Chapter Ten – Cybernetics, German Public Administration and the Reframing
of the Public Servant in the Neo-Verwaltungswissenschaft175
Pascal Hurni
Part Five – The Europeanised Public Servant in the EU
Chapter Eleven – Developing a Hybrid Identity? The Europeanisation
of Public Servants at the Continent’s Far West
Bernadette Connaughton
199
Chapter Twelve – European Values and Practices in Post-Communist
Public Administration: The Baltic States
Karin Hilmer Pedersen and Lars Johannsen
219
Part Six – Conclusion: A Shared Administrative Identity?
Chapter Thirteen – Shared Values for a European Administrative Identity?
A Cross-National Analysis of Government Employees’ Basic Human Values245
Julia-Carolin Brachem and Markus Tepe
Chapter Fourteen – Models of Public Servants’ Training and the Crisis
of Democracy: From ‘Politics as Vocation’ to the ‘Effective Bureaucrat’? 273
Gayil Talshir
Chapter Fifteen – Conclusions: Common Ground for a Common Future?
Patrick Overeem and Fritz Sager
295
Index303
List of Figures and Tables
Figures
Figure 10.1: Model of the state as a control chain
180
Figure 10.2: Model of the state as an intelligent organisation
181
Figure 13.1: Stylised relationship between Basic Human Values,
Person-Environment Fit and Administrative Tradition253
Figure 14.1: Legitimation crises: Hegemonic theory
286
Figure 14.2: An alternative theoretical framework
287
Tables
Table 2.1: Four Western administrative traditions
19
Table 3.1: The distinction between policy advice and political advice
38
Table 12.1: Core elements in public service legislation concerning
recruitment and ethics
225
Table 12.2: Sample size: distribution in countries and among levels
of administration
228
Table 12.3: Overview of public servants’ values on neutrality and
responsiveness229
Table 12.4: Values of integrity and responsiveness
230
Table 13.1: Definition and coding of variables
255
Table 13.2: Descriptive statistics
256
Table 13.3: Basic Human Values by institution of occupation
and country
258
Table 13.4: Determinants of government employees’ nationality
259
Table 13.5: Determinants of government employment
261
List of Abbreviations
ARAR
Algemeen Rijksambtenarenreglement, by-law to the Dutch CSA
BCE
Before the Common Era
CAP
Common Agricultural Policy
CSA
Civil Service Act
CNCAP
Code of Non-contentious Administrative Procedures
EAS
European Administrative Space
EEC
European Economic Community
ENA
École Nationale d’Administration (National School of Administration)
EP
European Parliament
EU
European Union
FRG
Federal Republic of Germany
GPGroot Plakkaat Boek: Great Ordinances Books of the United Dutch
Provinces (seventeenth and eighteenth centuries)
IEP
Institut d’Études Politiques (Institute of Political Studies)
IFS
Irish Free State
IMF
International Monetary Fund
IPA
Institute of Public Administration
NA
Nationaal Archief: The Netherlands National Archive
NATO
North Atlantic Treaty Organization
NESC
National Economic & Social Council (Republic of Ireland)
NPM
New public management
ODNB
Oxford Dictionary of National Biography
OEEC
Organisation for European Economic Co-operation
OECD
Organisation for Economic Co-operation and Development
OED
Oxford English Dictionary
PA
Public Administration, the science of public administration
PAS
Political–administrative system
PPBS
Planning, Programming and Budgeting System
PSB
Public service bargain
TKTweede Kamer: Proceedings of the Dutch Lower House of the
States General
WW2
World War II
Contributors
JULIA-CAROLIN BRACHEM is a research assistant at the HIS-Institute for
Research on Higher Education, Hannover, Germany.
BERNADETTE CONNAUGHTON is a lecturer at the Department of Politics
and Public Administration of the University of Limerick, Ireland.
GERRIT DIJKSTRA is an assistant professor at the Institute of Public
Administration of Leiden University, The Netherlands.
NIELS HEGEWISCH is a research assistant at the Institute for Political Science
of the Ernst-Moritz-Arndt-University, Greifswald, Germany.
PASCAL HURNI is a PhD candidate at the Center of Competence for Public
Management of the University of Bern, Switzerland.
LARS JOHANNSEN is an associate professor at the Department of Political
Science and Government of Aarhus University, Denmark.
CÉLINE MAVROT is a research assistant at the Center of Competence for Public
Management at the University of Bern, Switzerland.
PATRICK OVEREEM is an assistant professor at the Institute of Public
Administration of Leiden University, The Netherlands.
JOANNE PAUL is a lecturer at the New College of the Humanities, London,
United Kingdom.
KARIN HILMER PEDERSEN is an associate professor in Comparative Politics
at the Department of Political Science and Government of the University of
Aarhus, Denmark.
JOS RAADSCHELDERS is a professor of Public Administration at the John
Glenn School of Ohio State University, United States.
CHRISTIAN ROSSER is a fellow at the Center of Excellence “Cultural
Foundations of Social Integration” of the University of Konstanz, Germany, and a
research associate of the University of Zurich, Switzerland.
MARK R. RUTGERS is a professor of Philosophy of Public Administration in the
Department of Political Sciences of the University of Amsterdam, The Netherlands.
xii
The European Public Servant
FRITZ SAGER is a professor of Political Science at the Center of Competence
for Public Management of the University of Bern, Switzerland.
KOEN STAPELBROEK is an associate professor at the Department of Public
Administration of the Erasmus University Rotterdam, The Netherlands.
GAYIL TALSHIR is a senior lecturer in the Department of Political Science of
the Hebrew University, Jerusalem, Israel.
MARKUS TEPE is a professor of Political Science at the Institute of Social
Sciences of the University of Oldenburg, Germany.
CASPAR VAN DEN BERG is an assistant professor at the Institute of Public
Administration of Leiden University, The Netherlands and visiting fellow at the
Princeton Institute for International and Regional Studies, Princeton University,
United States.
FRITS VAN DER MEER is a professor in Comparative Public Sector and Civil
Service Reform of Leiden University, The Netherlands.