Mode nizing he Spanish Public Adminis a ion o Re o m
in Disguise
Joan SUBIRATS
Wo king Pape n.20
Ba celona 1990
Re o ming he adminis a ion is a pe manen subjec o discussion in
con empo a y Spain. F om he beginning o he 20 h Cen u y up o he 1989 p oposal
o mode nizing he adminis a ion a numbe o mo e o less cohe en a emp s has
been made o ans o m he wo kings o he Spanish adminis a ion. Al hough hese
a emp s di e ed in pe spec i e, hey all sha ed he same objec i e o adap ing highly
in lexible s uc u es o a socie y in which change is apid and some imes adical. (We
a e no e e ing he e o he e o m o he Spanish adminis a ion in e ms o he
e i o ial powe s uc u e bu in e ms o o ganiza ional and pe sonnel s uc u es and
he way he adminis a ion ope a es).
1.- F om he Mau a S a u e o he pu i ica ions o he F anco Yea s (1918-1957)
In 1918 Spain shi ed om he spoils sys em o a ue S a u e o Public
Managemen which dec eed he immo abili y o ci il se an s and es ablished he
"Special Co ps", designed along F ench lines. The Mau a S a u e was he i s majo
a emp o mode nize a, sys em o public adminis a ion which had p e iously been
un along he lines o a spoils sys em and linked o he "pendulum e ec " o cons an
shi s o go e nmen be ween he wo mos impo an pa ies o he imes: he
conse a i es and he libe als. Al hough his e o m did no pu an end o poli ical
pa onage and co up ion i a leas laid he ounda ion o a sys em o public
adminis a ion which la gely su i es oday (Baena del Alcaza , 1985, page 182 on).
The e we e a numbe o easons o his e o m, among he mos impo an o
which was Spain's ab up e ea in o i sel a he end o he 19 h Cen u y, ollowing
he loss o i s las colonies, and he need o eo ganize and imp o e he coun y's
own adminis a i e sys em which had un il ha ime been conside ed pu ely as a
sou ce o endowmen s and p i a e bene i s. Fu he mo e, a sys em which was
beginning o adjus o such new concep s as he banking sys em, p o i -making,
main aining a neu al posi ion in wo ld con lic s, e c. had a numbe o new needs
which equi ed a mo e p o essional, less nepo is ic ype o public adminis a ion. The
Mau a Re o m did a g ea deal o consolida e he con inui y o he Special Co ps
which had been inc easingly un ouched by he cons an swings o he Res au a ion's
poli ical pendulum.
Du ing i s i s yea s dic a o ship o P imo de Ri e a (1923-1930) a emp ed
o "mo alize" he ac i i ies o he Adminis a ion in consonance wi h Gene al P imo de
Ri e a's image as "The I on Su geon" which was in ended o gi e an au ho a i e and
au ho i a ian esponse o he se ious social p oblems which a ec ed he coun y
du ing a pa icula ly con lic i e pe iod. Du ing his ime a emp s we e made o educe
public spending, inc ease con ol o e ci il se an s (imp o e hei punc uali y,
educe he numbe o job acancies, e c.) while aking he i s s eps owa ds se ing
he public and p o iding p i a e ci izens wi h hei i s oppo uni y o o mally egis e
complain s. Mo eo e , his pe iod saw he c ea ion o a numbe o au onomous
en i ies and associa ions which ep esen ed bo h public and p i a e in e es s, as well
as he es ablishmen o some o he mos impo an public se ice companies, such
as CAMPSA (which had he monopoly on oil p oduc s), and Tele ónica (a
public/p i a e elephone company). Du ing his pe iod he e began o be signs o
I alian- ype co po a is in luences, which we e a mix u e o espec o he ma ke
economy and public in e en ion concei ed as an aid o p i a e ini ia i e and he
p ecu so o an aimed- o economic na ionalism.
The II Republic app oached he subjec o S a e Adminis a ion in much he
same "enligh ened" and " adical" way i app oached many o he nume ous p oblems
ha plagued Spain in he 1930's. Behind many o he a emp s made o e o m he
Spanish public adminis a ion du ing he II Republic lies a mis us o his e y
adminis a ion, poli ical mis us (The De ense o he Republic Ac ) and scep icism
abou he use ulness and hones y o he adminis a ion's ac i i ies (a emp s o
educe public spending by educing he numbe o ci il se an s and eo ganizing he
adminis a ion's ope a ing sys ems). A "Commi ee o S udy S a e Re o m" was
c ea ed in 1934 and i s indings caused au onomous agencies o be abolished and
egula ions on pay o adminis a i e pe sonnel o be es ablished (Ga cia Mada ia,
1977).
Du ing he second le is go e nmen (Feb ua y 1936), mis us o
au onomous agencies was o e come and a good numbe o hem we e c ea ed in an
a emp o apply speci ic policies in ields such as ag a ian e o m, public heal h, labo
and social secu i y, e c. (Baena del Alcaza , 1985). The ideology o he genuinely
epublican o ces was based on he idea o ein o cing he execu i e b anch and a
ision o ans o ming he coun y " om he op down" in which a loyal and e icien
adminis a i e sys em was absolu ely essen ial. In his espec , ob aining ci il
se an s' poli ical loyal y was a p io i y issue (and li le wonde , gi en he sho space
o ime he Republican go e nmen su i ed), despi e he ac ha poli ical
pu i ica ion could p o e a auma ic expe ience.
The iumph o F anco's ebel oops in 1939 once again aised he issue o
he poli ical loyal y o public se an s as a key elemen in shaping a New
(Mussolini-s yle) S a e. This led o he es ablishmen o a no ewo hy sys em o
poli ical "pu i ica ion" ( ia he Poli ical Responsabili ies Ac ) and acan posi ions
we e assigned ei he o people who may o may no ha e been p o essionally
capable, bu we e a leas absolu ely loyal o o people whose pe o mance in he
Ci il Wa dese ed ewa d. Mo eo e , he co po a is -au ho i a ian in e en ionism
which ma ked he i s yea s o he F anco egime con inued P imo de Ri e a's
p ac ice o c ea ing au onomous agencies and public companies. The Ins i u o
Nacional de Indus ia (INI) was c ea ed in imi a ion o he I alian IRI. He e we ha e a
mix u e o he pu es na ionalism wi h impo ed ascis co po a is o mulas which
we e o some ex en o eign o he Spanish conse a i e ideology, which was one o
adi ion and au ho i a ianism a he han ideological enewal.
Once he di icul au a chic pe iod o he 1940's wi h i s se ious economic
p oblems and i s pe ennial sca ci ies was o e and he in e na ional isola ion in which
Spain ound i sel a he end o Wo ld Wa II came o an end, he F anco egime was
aced wi h he need o eo ganize an adminis a i e sys em in which poli ical loyal y
was no longe su icien and in which he impo ance o p o essional knowledge and
skills was beginning o be ecognized. The Adminis a ion was aced wi h an e e
g ea e obliga ion o inc ease social bene i s and se ices (Social Secu i y, e c.) in
o de o compensa e o he lack o ci il libe ies and poli ical plu alism. This igge ed
a ce ain c isis in he excessi ely "ideological" managemen o adminis a i e
sys ems and caused he majo emphasis o be shi ed o he echnical and
p o essional skills in ol ed in he inc easingly complex ask o public adminis a ion.
2.- F om echnoc acy o poli ical ansi ion (1957-1977)
As he F anco egime became poli ically and economically mo e en enched,
i was also g adually "in o mally" included in he Wes e n bloc. Consequen ly i s
powe s uc u es and adminis a i e mechanisms needed o be gi en a g ea e
deg ee o " o mali y". This led o a pe iod o "ju idi ica ion" o he sys em which las ed
om he la e 1950's o he ea ly 1970's and i ually laid he adminis a i e
ounda ions o he egime. Mo ed by a spi i o e o m (Baena del Alcaza , 1985, p.
190) adminis a i e s uc u es we e eo ganized; he adminis a i e p ocedu e was
de ined and es ablished wi h ju idical igo , gua an eeing he ci izens' igh o
in o ma ion and ecou se; and he ci il se ice sys em was al e ed in such a way ha
he di e en co ps o o icials we e uni ied and a sys em o job classi ica ion and
emune a ion es ablished. All o hese inno a ions we e essen ially ju idical and
p ocedu al in app oach.
In hese yea s he F anco egime was anxious o en e he new Eu ope ha
was hen being shaped and much in need o economic ade wi h o he coun ies and
income om ou ism. In o de o achie e his, changes in he e y sys em o
go e nmen we e necessa y. S ill, he coun y managed o su i e in o he boom
yea s o he Six ies wi h a poli ical and ideological s uc u e ha was o ally obsole e.
Du ing his ime powe shi ed om he old gua d Falangis s o he echnoc a s o he
Opus Dei, who combined a high deg ee o echnical skill wi h an ul a-conse a i e
ideology. This acili a ed con ac wi h o he Wes e n Eu opean coun ies wi hou
jeopa dizing he au ho i a ian basis o Spain's poli ical sys em.
Unde hese ci cums ances, he legal and adminis a i e e o ms ha ook
place in Spain be ween 1957 and 1964 mus be iewed as an a emp o es ablish
adminis a i e p ac ices compa able o hose o Wes e n Eu ope's S a es o Law
(" ech s aa "), bu wi hin a con ex o poli ical au ho i a ianism which denied any o m
o plu alism. A he same ime, hese e o ms ga e Spain a mo e a ional and e icien
basis om which o con on he new needs o a S a e whose adminis a i e sys em
was g owing and whose economic in e en ionism was inc easing.
Thus, he c isis o he sys em was no caused by i s adminis a i e o
echnical inabili y o gua an ee he wo kings o he a ious s a e agencies. The c isis
o he F anco egime was essen ially caused by i s inabili y o p o ide ins i u ional,
poli ical and ep esen a i e ou le s o a socie y , ha was ully de eloped
economically and clea ly oo ed in ideological and cul u al plu alism. I was his
poli ical inabili y and i s inc easingly se ious e ec s on he economy which led o he
blockade o he egime du ing he dic a o 's inal yea s and caused he en i e sys em
o c umble once he dic a o himsel ceased o exis . In ac , he end o he F anco
yea s did no b ing abou signi ican changes in he s uc u e o Spanish public
adminis a ions which ins ead su i ed in a so o ense expec a ion, awai ing wha
p omised o be ine i able change (Nie o, 1986).
3.- Con inui y and change -in he democ a ic adminis a ion
Sho ly a e he ansi ion o democ acy go unde way, Spain en e ed a
cons i uen pe iod and a he end o 1978 a new Cons i u ion was app o ed. I s mos
no ewo hy e ec was he adical ans o ma ion caused by he in oduc ion o
poli ical plu alism and democ a ic sys ems o ep esen a ion in a coun y which had
enjoyed ull poli ical eedom du ing e y ew yea s o i s en i e con empo a y his o y.
Mo eo e , he in oduc ion o egional au onomy ounded on he p incipal o legal
ecogni ion and complemen ed wi h e e ences (A . 103) o e iciency, hie a chy,
decen aliza ion and coo dina ion (Baena del Alcaza , 1984) caused a adical change
in he e i o ial o ganiza ion o Spain's public adminis a ion. No pa icula poli ical
"pu i ica ion" was enac ed in his momen . Bu on he con a y, he new democ a ic
egime accep ed he inco po a ion as ci il se an s o he 27.000 o me bu eauc a s
coming om his alangis pa y and he anchois union (Bel an, 1990).
Al hough egional au onomy is no he subjec o his pape , we canno ail o
emphasize he d as ic change ha ook place in he wo kings o a adi ionally
cen alized adminis a ion when 17 au onomous egions o "communi ies" wi h ull
legisla i e and adminis a i e powe s we e es ablished. Apa om his, he new
Spanish Cons i u ion also b ough he coun y's public adminis a ion sys em in o he
same gene al legal amewo k which go e ns he adminis a ion sys ems in o he
Eu opean democ acies.
Su p ising as i may seem, he e was no signi ican change in Spain's public

adminis a ion sys em un il 1984. Du ing he se en yea s ha elapsed be ween 1977
and 1984, he coun y's go e nmen s ( i s he UCD cen is who held o ice om
1977-1982 and hen he socialis s who ha e been in powe since 1982) seem o ha e
el ha changes o an ins i u ional o legisla i e na u e we e mo e impo an (Nie o,
1986). I is also ue ha es uc u ing he S a e in o au onomous egions mean a
adical change which in ol ed emendous e o s and exhaus ed a la ge pa o he
a ailable ene gy. Finally, in 1984, an eme gency law was passed on he e o m o he
Public Adminis a ion. This law was, howe e , limi ed o he ma e o ci il se an s
and le he mo e gene al e o m o a la e da e, hus educing he possibili ies ha
migh ha e been pe mi ed by a poli ical change such as he one which has aken
place.
This law was s ongly c i icized (Nie o, 1986; Baena del Alcaza , 1985) o i s
poo echnical quali y and he p oblems in ol ed in applying i . The law de ines a
ce ain policy o pe sonnel employed by public adminis a ions, uni ies he di e en
co ps ha exis ed, p o ides a lis o public se ice jobs and es ablishes a ce ain
ca ee pa h wi hin he public adminis a ion. A ew yea s la e (1987) he Ci il Se ice
Ac was passed. This es ablishes public se an s' channels o ep esen a ion, hei
wo king condi ions and igh s o pa icipa ion and implici ly ecognizes hei igh o
join labo unions and pa icipa e in nego ia ions on wo king condi ions and sala ies.
Since his law was enac ed, he labo o ganiza ions ha ha e p o en
s onges in he public adminis a ions a e he communis inspi ed "Comisiones
Ob e as", he socialis "Unión Gene al de T abajado es" (which a e he s onges
unions in sec o s o he han he adminis a ion), and he "Con ede ación Sindical
Independien e de Funciona ios", which is no linked o any pa icula poli ical pa y
and is mo e conse a i e in ou look.
1987 saw he beginning o a new a emp o globally e o m he Spanish
public adminis a ion. The ocus and app oaches o his es uc u a ion p ocess a e
hi he o unknown in he coun y's his o y o public adminis a ion and a e analyzed on
he ollowing pages.
4.- Mode nizing he Adminis a ion
Following he 1986 elec ions, when he Socialis Pa y once again won an
absolu e majo i y, a Minis y o Public Adminis a ions was c ea ed. This Minis y is
basically empowe ed o o ganize he sys em o adminis a ion and ci il se an s and
coo dina e he public adminis a ions in he au onomous egions. In Ap il 1989 he
Minis y's epo , "Re lec ions on Mode nizing he Adminis a ion" was published.
Acco ding o i s in oduc ion, he epo is he esul o mo e han wo yea s o wo k by
he Minis y. Once i has been ho oughly examined and discussed i should se e as
a guideline o he "adminis a i e e o ms s ill pending" (Minis y o Public
Adminis a ions, 1989, p. 2) (P e iously see P a s, 1982).
a) The basic p emises
The e a e h ee basic p emises: 1) su icien ime will be de o ed o
diagnosing and e alua ing he a ie y o si ua ions con ained unde he heading o
Public Adminis a ion; 2) he app oach will be empi ical, based on he expe iences
compiled; 3) he Minis y will be able o in eg a e he pa ial solu ions ound in o he
design o a u u e amewo k o public adminis a ions. The app oach o he en i e
p ojec is openly "non-legalis ic" and ep esen s a clea b eak wi h adi ion and a
spi i o inno a ion which is con i med by he es o he epo and by he i s
expe iences which ha e aken place since he epo was published.
The o igin o mo i a ion o he epo is also clea : " he Adminis a ion's
p o en unsa is ac o y pe o mance". To his is added: 1) Spain's en y in he EC and
he consequen adap a ions which mus be made; 2) he need o achie e in as a e
coope a ion in o de o imp o e public se ices; 3) he desi e o imp o e he
e e -inc easing numbe o S a e se ices by in oducing "new managemen
echnologies" (MAP, 1989, p. 6).
Acco ding o he au ho s o he epo , his in ol es sepa a ing poli ics om
adminis a ion, comple ely ede ining he ole o he adminis a ion and in oducing a
new adminis a i e cul u e which is mo e in line wi h he "desi ed goals o
mode niza ion and e iciency". (MAP, 1989, p. 8).
As Joaquín Almunia, Spain's Minis e o Public Adminis a ions, said ecen ly,
he coun y is ying o "shi om a cul u e based on he legali y o he ac i i ies being
ca ied ou o a cul u e which does no ques ion he p inciple o legali y bu p ides
i sel on ge ing esul s while abiding by he law. A cul u e in which o icials a e
beginning o s op eeling smug abou simply doing hei assigned du ies and s a ing
o hink abou how hese du ies can be changed and enhanced so ha wi hin a yea
o wo he con en o each job o each sec ion o he Adminis a ion will imp o e".
(Almunia, 1990).
b) P oposed a eas o change
The mode niza ion p ojec is based on he assump ion ha he much needed
change in adminis a i e cul u e will ake place and speci ic a en ion will hen be paid
o h ee p incipal a eas:
-o ganiza ional aspec s
- unc ional aspec s
-human esou ces
All he epo s which se e as a basis o he p ocess i s desc ibe he
cu en s a e o a ai s, i s condi ioning ac o s and de iciencies and hen examine he
imp o emen s p oposed o ou lined. Table 1 below is a summa y o he diagnosis
gi en and he ange o e o m measu es p oposed.
Among he ou s anding ea u es a e he ollowing:
1) A emp s a e being made o change he adminis a i e cul u e om a
model which was p edominan ly ju idical and gua an eed he wo kings o an
adminis a ion ha was basically in ended o " egula e" li e and ca ed li le abou he
ou come o he ac ions o he public powe s o a managemen -based model ha is
deeply conce ned abou ge ing esul s and se ing he "cus ome " o use o public
adminis a ions which a e inc easingly becoming pu eyo s o se ices.
2) In he ield o o ganiza ion, emphasis is being placed on he need o
change om a e y igid s uc u e o "mechanical bu eauc acy" (Min zbe g, 1979) in
which , he esponsibili ies o poli icians and public se an s a e no clea ly de ined
and whe e he e a e. con adic o y opinions abou pe iphe ical adminis a ion o he
S a e and how i should ela e wi h o he adminis a ions ( egional o local). The
mode niza ion p ojec p oposes changing o an o ganiza ional model based on
g ouping unc ional a eas in o sel -su icien modules, budge ing by objec i es and
using audi -based me hods o con ol.
3) The unc ional aspec s and p ocedu es ha e also been highly c i icized on
he g ounds ha he e is a wide gap be ween he inc ease in asks which mus be
pe o med by he a ious public adminis a ions and he ou moded managemen
me hods being used. Senio public se an s do no ha e well-de ined ields o ac ion;
hey a e no su icien ly au onomous and hey a e subjec o excess con ol. The
p oposal is o change his o a sys em o . managemen by objec i es, wi h g ea e
eedom o mo emen , s eamlined p ocedu es and use o new in o ma ion and
managemen echnologies.
4) Las bu no leas , he e is he ma e o human esou ces. Public
Adminis a ions a e s ongly c i icized o subjec ing hei pe sonnel o excessi ely
s anda dized ea men ; i is di icul o a ac and main ain quali ied pe sonnel; he e
is a se ious lack o mo i a ion among low, aining ci il se an s. Pay is oppo uni ies
limi ed and he e is li le chance o ad ancemen . The p oposed e o m aims o
shape a be e sys em o ec ui ing and aining p o essional ci il se an s, c ea e
mo e a ional sala y scales and imp o e he chances o ad ancemen .
c) Wha has been done hus a ?
The Minis y o Public Adminis a ion's aim in publishing he pape
"Re lec ions on Mode nizing he Adminis a ion" was o ge discussions s a ed wi hin
he Adminis a ion i sel and pa icula ly among he highe anking o icials o he
di e en minis ies and he labo o ganiza ions which ep esen ci il se an s.
Fu he mo e, he mass media and specialized publica ions o ci il se an s we e
used o publicize he basic aims o he p oposed mode niza ion measu es and open
he way o e o m.
A e hese i s discussions, he ex o he p oposal was amended o include
he mos no ewo hy con ibu ions and a poll was aken in o de o "mo e
sys ema ically de e mine he opinions o a ious adminis a o s as ega ds he mos
impo an aspec s o hei managemen ac i i ies and how hey pe cei e he exis ing
p oblems" (MAP, 1989, b). The Delphi sys em was used and he poll managed o
c ea e a ce ain spi i o consensus and in ol emen in he p ocess o e o m.
Pa allel wi h his, a se ies o p uden measu es was enac ed (Law 23/1988;
Royal Dec ee 28/1990), b inging imp o emen s in some aspec s o ci il se an s' job
selec ion and ca ee oppo uni ies.
d) Ope a ional Se ice Inspec ions
A he same ime, he Gene al O ice o Public Adminis a ion Se ice
Inspec ions (IGSAP), which was es ablished in 1986, has been ca ying ou wha a e
known as Ope a ional Se ice Inspec ions. IGSAP is in cha ge o s eamlining
bu eauc a ic p ocesses, p ocedu es and wo king me hods and de eloping s anda ds
o a ionaliza ion o public adminis a ion (Royal Dec ee 22/1987), along he lines o
he "de-bu eauc a iza ion" which has aken place in o he coun ies.
IGSAP began as a p i a e consul ing ope a ion, de eloping i s own wo king
me hod. Each OSI is in ended o imp o e he wo kings o a single uni o se ice o
he public adminis a ion and pe manen ly e alua e bu eauc acy and public se ices.
They y o a oid gi ing he imp ession ha hey a e a means o con ol o a " h ea ",
as o he ypes o e alua ions end o be (Wilda sky, 1985). Ope a ional Se ice
Inspec ions a e ca ied ou only a he eques o he agency o be inspec ed an he
agency mus pa icipa e ac i ely in diagnosing i s p oblems. IGSAP is cu en ly
wo king on a p ojec called Module Ze o which aims o e eal which agencies ha e
he g ea es p oblems in hei ela ions wi h he public. Among he sou ces o
in o ma ion used in his p ojec a e he epo s issued egula ly by he "De enso del
Pueblo", o Spanish "ombudsman".
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pp. 10-13.
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