Comparative Public Administration Source: The American Political Science Review, Vol. 60, No. 3 (Sep., 1966), pp.

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752

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the Third Five-Year Plan. Oxford Economic Papers. 18:1 (March 1966), 111-25. Prause, Franqois. Le Pakistan a la recherche L'Afrique et l'Asie. No. 71 d'une id6e national. (1965), 3-20. Swarup, Ram. Communism in India in the Post-Nehru Period. Orbis. 9:4 (Winter 1966), 985-998. The Collector in the Nineteen Sixties: Symposium. Indian Journal of Public Administration. 1965), 345-659. 11:3 (July-September

Far East and Oceania Berrien, F. Kenneth. Japanese Values and the Democratic Process. Journal of Social Psychology. 68:1 (February 1966), 129-38. Mendel, Douglas H., Jr. Japan Today: Case Study of a Developing Nation. Trans-Action. 3:3 (March-April 1966), 15-21. Nicholson, R. D. Anatomy of a Senate Vacancy. Australian Quarterly. 38:1 (March 1966), 91-101.

COMPARATIVE PUBLIC ADMINISTRATION

BY FRED G. BURKE. M. GROSS. (Syracuse: Press, 1965. National Syracuse University Planning Series, 3. Pp. xi, 108. $3.25.) In an era when we sometimes feel that we are inundated with political studies that tell us more than we care to know about the intimate workings of obscure "systems" in remote corners of the world, it is perhaps refreshing to come upon a book that reveals too little. Professor Burke, the able Director of the Program in East African Studies at Syracuse, sprinkles his survey of planning from colonial through post-colonial times with a number of interesting suggestions for approaches to future study, but it serves only to whet our appetites for the actual descriptions and analyses of "politics and planning" in Tanzania. In the absence of more than suggestions of approaches the present book adds very little to the stock of knowledge or conceptual devices in the hands of contemporary students of comparative politics and development planning. The reader will be left wondering what scholarly advantages were seen in introducing the problem of planning in Tanzania in thirty-five pages of a seventy-five page survey instead of waiting perhaps three or four years for evidence of the operations and preliminary results of Tanzania's first Five Year Plan. One suspects that the notion of "preplanning" (never fully clarified) is meant to turn aside those who counsel patience in assessing patterns of political development. Indeed Professor Burke notes that "national planning, in the proper sense of the term, has never existed" in Tanganyika. By what standards then are we to judge the present study? Answer: "The major significance of this preliminary survey does not rest in new data that it might uncover but rather in the extent to which the process of postulating, projecting, and then moving toward a certain state of affairs in a new African country gives rise to some new insights into the general nature of this uniquely human process." It is the author's intriguing suggestion T7anganyika Preplanning.
PREFACE BY BERTRAM

that "planning" should be viewed as projecting a desirable state of affairs to some future point and supporting it by an outline of steps necessaryto accomplish that state. Aside from the fact that such a view of planning barely separates it from the literature of political utopias, it makes the indicates the "significance" of first quote-which like another suspiciously the survey-sound admonition that we must study politics everywhere to learn something about planning in general. If so, then we need a study of Tanzanian politics and not a history of non-planning in Tanganyika. The fact is, however, that Professor Burke is a shrewd observer and that his bird's-eye tour is not without reward. For instance, he points out that the colonial political system set in motion forces within the economy of pre-independence Tanganyika which were handled by the administration in a way that constructed the scaffolding of a planned society. Unfortunately the links between colonial marketing boards and present national planning are not explored further. It might be interesting to judge at some future date the in governments extent to which "socialist" Africa are tied to the structures, procedures and long deideologies of colonial administrators parted. Regarding the colonial system, Professor Burke also suggests (somewhat at variance with that provincial adthe previous observation) ministrations were able to lobby for increasingly larger investments in local government and dealthought, Another stimulating velopment. though this reviewer believes the situation less clear than that, but again, its implications must be dropped for another headlong charge through "the Groundnut Scheme" and its famous failures. An important theme emerges in the final section of the book: the dependence of planning on international arrangements and the management of local communities. In this way one is justified in firmly tying the analysis of national planning to the total picture of politics in any of the underdeveloped countries. Perhaps this is what dis-

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tinguishes development planning from other sorts in our time. The dilemma in transforming "primordial sentiments" in parochial communities via a planning mechanism that functions in large part as a reflection of international forces outside its control is a cruel one. It makes the future study of politics/planning in Tanzania poignant as well as illuminating. At least three other problems are related to Professor Burke's remarks on present-day planning in Tanzania. They all deal with the possibly unique politics of planning deliberation. Tanzanian political leadership has brought in a French approach to national planning (replete with a French advisor at the outset) in a setting of English procedures and bureaucratic style. The results of this "marriage" will interest students of public adminsitration everywhere. There is, in addition, the emergent problem of the interplay between the planning secretariat and the politicians. The formal arrangements are outlined by Burke; what we need now is discussion of the dynamics of decision-making. This discussion will have to take account of the role of the paragovernmental corporations in Tanzania, a development which augurs a new wave of "corporatist" devotees in the tropics. Finally, the struggle over the planning arrangements for the country can be seen as reflecting the conflict between "centralizers" and "pragmatists" in the government. This doctrinal dimension to planning probably ought not to confine one's concern for African politics, but neither should it be ignored.HARVEY GLICKMAN, Haverford College. Bureaucratic Transition in Malaya. By ROBERT 0. TILMAN. (Durham: Duke University Press for the Duke University Commonwealth Studies Center, 1964. Pp. vii, 175. $6.50.) This is a pioneering introduction which makes available important data concerning the development and composition of the Malayan bureaucracy. It is particularly valuable for its description of the process of Malayanization of the civil service in the period subsequent to independence in 1957. Professor Tilman describes the rapid decrease of expatriates in the senior bureaucracy-a drop from 61 per cent of the total in 1957 to 40 per cent in 1962-and notes that in general the Chinese and Indians have tended to gravitate toward the professional and technical services, while the Malays are concentrated largely in the and police services. One of his administrative most significant findings is that the senior bureaucracy as a whole is not-as has often been assumed-the preserved domain of the Malays, but in fact incorporated as of 1962 an even larger Chinese than Malay component-34 per cent Chinese, 29 per cent Malay, and 16 per cent

Indian. Thus, by 1962 the Malays held posts in the senior bureaucracy equal to 67 per cent of the Malay proportion of the total population compared to 117 per cent for the Chinese. Some of Tilman's material may, however, prove misleading for readers with little knowledge of the Malayan political setting. He discusses the elite level of MCS (Malayan Civil Service)-the the bureaucracy-some thirty pages after his section analyzing the ethnic composition of the senior bureaucracy as a whole. This aspect of the book's organization may confuse readers, for it is decisions of in the MCS that adminisstrative greatest political consequence are made; and, as Tilman points out, this body is overwhelmingly Malay in composition. He notes that in 1962 it included 219 Malays and only 17 Chinese (15 were Indian and 26 expatriate). Here Professor Tilman takes a deep speculative plunge. Noting that recruitment to the MCS is on the basis of a quota of four Malays to each non-Malay, he concludes: "Even if all other conditions were equal, it is statistically probable that a non-Malay would have to be four times more qualified than a Malay if he were to be acceptable in the eyes of the MCS. Thus, if the objectivity of the organs of the bureacuracy of internal administration continues, it seems not unlikely that positions of may increasingly be asmajor responsibility signed to those most qualified for the posts, and in time it may be discovered that while the MCS is still predominantly Malay in character the decision-making process could be monopolized by a group that is disproportionately non-Malay." This speculation points up the major weakness of this study, which detracts from its value as a whole and at the same time is likely to result in serious misunderstanding on the part of students of public administration who do not already have some knowledge of post-independence Malayan politics. For this study of bureaucracy is largely devoid of political context, and in Malaya that is quite as germane as in any other country. The salient features of this setting must be understood if one is to have the necessary basis for assessing the relevance of any breakdown of the bureauat the cracy's ethnic composition-especially upper levels of the administrative civil service. For there is a startling lack of congruence between the proportion of positions held by the Chinese in the senior bureacuracy as a whole and their power in the government. The Malays, though less numerous than the Chinese in the new state of Malaysia (39 per cent as against 42 per cent) continued to dominate the national government as they did that of quite as overwhelmingly Malaya (where they constitute 50 per cent of the population as against 37 per cent for the Chinese). They insisted upon maintenance and

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provisions of constitutional even expansion which discriminate sharply against the Chinese and are calculated to maintain continuing domination of the government by the Malays. (This attitude was a major reason for Singapore's secession from Malaysia in 1965, subsequent to the publication of Professor Tilman's book.) Surely the reader needs to be aware of this and of other special attributes of the country's political system if he is to have a minimally sufficient basis for understanding the nature and role of its bureaucracy. For this particular political setting does severely condition the way the bureaucracy functions and undoubtedly accounts in considerable measure for the virtual monopoly by Malays of the administrative decision-making level-the elite MCS. Indeed, an estimate of the actual ethnic division of political power could better be drawn from the figures Professor Tilman cites for the ethnic composition of the MCS than from his figures for the senior bureaucracy as a whole. Tilman's treatment of the colonial bureaucracy is comprehensive and very useful to an understanding of many important factors of the bureaucracy of independent Malaya. However, his coverage of what he terms "the political system of traditional Malaya" is weak. Despite the caveat proffered him by J. M. Gullick that the latter's study, Indigenous Systems of Western Malaya, should be regarded "as purely and explicitly as 19th century material," Tilman nevertheless appears to be heavily dependent upon this material in his efforts to infer the nature of the indigenous system in previous periods. There is, moreover, a major omission in his account of the situation in the 19th century just prior to the extension of British rule. This is his disregard of the significant role of the powerful Chinese tinmining Kongsis in the East coast sultanates and their important political and administrative relations with the Malay rulers. One could read this early section and be quite unaware that one of the major administrative problems for some of these rulers was their relationship to what were or sometimes large enclaves of autonomous, Chinese administration autonomous, largely within their realm. This is a book, then, which should be of value primarily to those who already have sufficient background knowledge, especially an understanding of the local political environment, to appreciate the author's important findings concerning the development and current character that bureaucracy-particularly of Malaysia's major part of it which operates in Malaya itself. McT. KAHIN, Cornell University. -GEORGE Foreign Aid and Politics in Nepal. By EUGENE MIHALY. (New York: Oxford University Press, 1965. Pp. viii, 202. $6.75.)

This fascinating book is a chronicle of failure, if One can learn much from not hopelessness. failure, though the author's lessons offer scant encouragement to the revolutionaries of rising expectations. He reminds us that economic aid should not appear in forms and amounts that might displace indigenous efforts or reforms; that aid donors should not expect all governments and peoples to be ready for change; that aid should not depend too heavily upon the administrative resources of the host government. If the sole purpose of aid were to force-feed economic growth improvement, these lessons and technological would become iron laws. That there may be reason to offer aid where economic prospects are slim, the writer does not appear ready to concede. Important methodological questions are posed by the uses made of the case studies in this volume. The incidents described do not seem connected to their imputed consequences, which are almost invariably negative. Yet failures in technical assistance lead the author to suggest that foreign aid should concentrate on largescale capital projects, which are fairly independent of government intentions and apparatus and which require no public support. [This view is now dominant in American foreign aid circles, which, despite the current emphasis on reform, prefer to avoid involvement in the activities and operations of foreign aid projects in the hope of improving the prospects of success.] The hypothesis is certainly justified if success is defined as avoiding unpleasant complications. But if important technological change is required, either within small groups of the host nations' specialists or in the mass of its peasantry, some complications must be expected. In the case of Nepal the real issue was not how to avoid complications but how to stimulate favorable change. The author considers Nepal "a microcosm of the challenges and difficulties that major aidgiving countries face everywhere." Upon this some major conclusions dubious proposition for depend. In criticizing aid administrators generalizing too much, the author joins them in and interassuming the virtual universality changeability of cultures and approaches. Perhaps Ethiopia is the country that most closely resembles the conditions described in Nepal, although it was obviously the more developed and stable of the two during this period. But the consequences of aid in Ethiopia seem quite different from those in Nepal. The pervasive scent of failure in Nepal leads the author to regard the "revolution of rising expectations" as a mirage everywhere because the peasants and government leaders in Nepal are "unwilling" to accept change. The Gilbert and Sullivan quality of the Nepalese case weakens these convictions, since

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the author did not cite aid experiences elsewhere. This story of unmitigated failure offers only one real consolation, that practically everyone failed: The Americans, of course, being Americans; the Indians, who were kicked out; the Chinese, some of whose money was used to pay for American projects; and the Soviet Union, which was too late in starting to have chalked up any "successes." The Swiss and Israeli did succeed, in very small projects, some of which

were financed by the U.S.; and the Indians in several rather large ones which represented the work of their own personnel exclusively. The best, most interesting, and most useful parts of the book are its views of project planning and field operations, which are still largely neglected in the available literature of foreign aid. It is a thoughtful and perceptive specimen of this genre.-JOHN D. MONTGOMERY, Harvard University.

SELECTED

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NIMROD RAPHAELI The University of Michigan General Works Chapman, Richard A. Rousseau on Natural and Unnatural Administration. A administration. Autumn, 1965. Diamant, Alfred. The Temporal Dimension in Models of Administration and Organization. CAG Occasional Papers. April, 1966. Esman, Milton J. The CAG and the Study of Public Administration: A Mid-Term Appraisal. CAG Occasional Papers. April, 1966. Holt, Robert T. Comparative Politics and Comparative Administration. CAG Occasional Papers. April, 1966. Langrod, G. Vie Administrative a lFEtranger. La Revue Administrative. No. 108, 1965. Lee, Hahn-Been. Developmentalist Time and Leadership in Developing Countries. CAG Occasional Papers. 1965. van Nieuwenhuijze, C.A.O. Area Studies: Unidisciplinary, Multidisciplinary, Interdisciplinary. International Journal of Comparative Sociology. September, 1964. Patel, Narsi and Jiri Kolaja. Personal-Impersonal Dimension in Organizational Behavior: A Variation of the Weberian Model. Ibid. March, 1964. Santos, Conrado R. The Use of Analytical Models in the Comparative Study of Bureaucratic Organizations. Philippine Journal of Public Administration. July, 1965. The Sayre-Kaufman Outline; A Research Design for a Pilot Study in Comparative Administration. CAG Occasional Papers, 1966. Valsan, E. H. The Prismatic Model and the Problems of Communications. Philippine Journal of Public Administration. October, 1965. Rowat, Donald C. How Much Administrative Secrecy? The Canadian Journal of Economics and Political Science. November, 1965. Bureaucratic Systems Ashagrie, Kebebew. Some Problems of the Public Service in Ethiopia. Canadian Public Administration. September, 1965. Ballard, Allen B. Jr. Problems of State Farm Administration. Soviet Studies. January, 1966. Ginsburgs, George and Arthur Stahnke. The People's Procuratorate in Communist China: The Period of Maturation, 1951-1954. The China Quarterly. October-December, 1965. Gregoire, Roger. The French Fonction Publique and the British Civil Service. Canadian Public Administration. December, 1965. Hamaoui, E. Les organes de gestion des activites de administration afghane. International Review of Administrative Sciences. No. 3, 1965. Harris, Richard L. The Government Bureaucracies of West Germany and Italy. Philippine Journal of Public Administration. July, 1965. Harris, John S. and Thomas V. Carcia. The Permanent Secretaries: Britain's Top Administrators. Public Administration Review. March, 1966. Henderson, Keith M. The Han-Sui Bureaucratic Systems in Ancient China. Philippine Journal of Public Administration. July, 1965. Ali Shah, Syed Darbar. Some Thoughts on the Role of Administration in Pakistan. NIPA Reporter. September, 1965. Modeen, T. Theorie sur la notion d'etablissement public independent en droit finlandiais. International Review of Administrative Sciences. No. 3, 1965. Siegel, G. B. and K. Nascimento. Formalism in Brazilian Administrative Reform: The Example of Position Classification. Ibid. Siegel, Gilbert B. The Strategy of Public Administration Reform: The Case of Brazil. Public Administration Review. March, 1966.

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