Revista de Management i Inginerie Economic, Vol. 11, Nr.

3, 2012 -1-

CUPRINS
1. Editorial
Variaiunile implicrii umane n procesul de munc ............................................................................. 5

Prof.dr.ing., ec. Ioan Abrudan Universitatea Tehnic din Cluj-Napoca 2. Sinteze

Eficacitatea operaional i strategia .................................................................................................. 11

Prof.dr. Moise uurea, Asist.dr. Mihaela Rotaru Universitatea Lucian Blaga din Sibiu
Fundaii i mecanisme ale economiilor de aglomerare ....................................................................... 23

Conf.dr.ec. Raluca Irina Clipa Universitatea Gh. Zane din Iai

Rolul modelrii motivaionale n creterea competitivitii ................................................................. 35

Prof.dr.ing. Monica Izvercianu, drd. Alina Radu Universitatea Politehnica din Timioara
Elaborarea i implementarea planului de afaceri................................................................................ 41

Lect.dr. Carmen Gabriela Secar Universitatea din Piteti

Proverbe i management interferene poteniale .............................................................................. 51

Dr.ing. Radu t. Lupan Universitatea de Nord Baia Mare 3. Studii i cercetri

Scenariu strategic privind dezvoltarea turismului urban n Romnia .......................................................... 73

Lect.dr. Mihaela Dana Parfene Universitatea George Bariiu din Braov

Vor supravieui vechile ntreprinderi crizei economice? ................................................................. 83

Drd.ing. Adriana idor, Prof.dr.ing. Liviu Morar Universitatea Tehnic din Cluj-Napoca
Analiza sectorului ceramic n Romnia ............................................................................................... 91

Drd. Zsuzsanna Turczy Universitatea Tehnic din Cluj-Napoca, Prof.dr.ing. Liviu Marian Universitatea Petru Maior din Trgu Mure
Producia curat n industria de pielrie i managementul su tehnologic .................................. 101

Nicoleta Trandafir, Constantin-Dan Dumitrescu Universitatea Politehnica Timioara

Politici de producie i de personal n cadrul unei societi productoare de cablaje electrice (3) . 111

ef lucr.ing.dr.,ec. Ancua Blteanu Universitatea din Piteti

Aspecte privind managementul stocurilor de materii prime folosind reele neuronale ..................... 121

Drd.ing. Emilia Cmpean, Prof.dr.ing. Liviu Morar, Drd. Pap tefan Universitatea Tehnic din Cluj-Napoca, Ing. Dumitru Pop Grupul colar V.Gelu Zalu,
Management orientat spre acionari .................................................................................................. 129

Drd.ing. Paul Rusu, Drd.ing. Lucian Ovidiu Jimborean Universitatea Tehnic din Cluj-Napoca

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Viziunea managerilor asupra dezvoltrii resurselor umane .............................................................. 137

Drd. Alexandra Maria Fira Universitatea din Craiova 4. Metodologie

Metodologia cercetrilor privind factorii determinani ai structurii capitalului firmelor ................. 145

Conf.dr. Mihaela Brndua Tudose Universitatea Gh. Zane din Iai

Modele ale msurrii performanei organizaionale ......................................................................... 157

Drd.ing. Bogdan Mircea Cardo, Drd.farm. Mihaela-Eva Mu Universitatea Tehnic din Cluj-Napoca
Metodologia de evaluarea a riscului marin utiliznd evaluarea formal a siguranei n bazinul Mrii Negre ....................................................................................................................... 169

ef lucr.dr.ec.,ing. Carmen Gasparotti Universitatea Dunrea de Jos Galai

Modelul birocratic n administraia public ...................................................................................... 185

Drd. Dana Veiss, Drd.ing. Ioan Simion Dan Universitatea Tehnic din Cluj-Napoca
Amplasarea optim a resurselor de fabricaie i evaluarea economic n cadrul unui proiect ........ 199

Drd.ing. Marian Andrei Guru Universitatea Politehnica Bucureti

Segmentarea pieei consumatorilor de gaze naturale din Romnia ................................................... 207

Drd.ec. Ana Oltean Universitatea Tehnic din Cluj-Napoca 5. Debut studenesc

Munca n echip ................................................................................................................................. 215

Lorena Raiu, Student an I, Inginerie Economic Universitatea Tehnic din Cluj-Napoca 6. Studii de caz
Relaia cu prile interesate. Studiu comparativ ntre IMM-urile romneti i cele suedeze ................... 217

Dr.ing.ec. Mihaela Ancua Mirea, Prof.dr.ing. Dan Cndea Universitatea Tehnic din Cluj-Napoca
7. Semnal .................................................................................................................................... 227

8. Recenzii
Despre Schimbare organizaional i dezvoltarea facultii ......................................................... 229

Prof.dr.ing. DHC Constantin Oprean Universitatea Lucian Blaga Sibiu 9. Personaliti

Friedrich Hayek i contribuiile sale n tiinele economice .............................................................. 233

Drd. Dana Teodora Dragonici Universitatea Tehnic din Cluj-Napoca

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MODELUL BIROCRATIC N ADMINISTRAIA PUBLIC BUREAUCRATIC MODEL IN THE PUBLIC ADMINISTRATION

Drd. Dana VEISS Drd.ing. Ioan Simion DAN
Universitatea Tehnic din Cluj-Napoca

Abstract: This paper refers to the stages of the bureaucracy development as a form of government and public administration system. From Max Weber's phrase, "bureaucracy is the ideal type of institutional organization towards which the modern society aspires" today, the concept has received pejorative directions which concludes that the public administration should have as main characteristic or purpose, creating new jobs and not the public interest served. Assuming that efficiency is the ultimate goal of any institution and effectiveness as the ratio of the achieved objective and the result to achieve, we will manage to influence productivity in the public sector. Keywords: birocracy, Weber Max, public administration

INTRODUCERE

INTRODUCTION

Birocraia este un mecanism gigantic acionat de oameni mruni., Balzac Birocraia este un cerc din care nu poate scpa nimeni. Ierarhia sa este bazat pe cunoatere. Cei din vrf consider c cei de sub ei cunosc amnuntele, iar cei de jos i crediteaz pe cei din vrf cu cunoaterea ansamblului, i aa toi sunt pclii reciproc., (Karl Marx, 1973) Termenul de birocratie este pentru prima data definit n anul 1745, de ctre Vincent de Gournay prin adaugarea termenului grecesc kratos (a conduce) la cuvntul francez bureau (birou). Administraia public urmeaz un model birocratic ncepnd de la mijlocul secolului al

"Bureaucracy is a giant mechanism operated by small people.", Balzac "Bureaucracy is a circle can not escape anyone. Hierarchy is based on knowledge. The top believes that those below them know the details, and those below them credited on the top with all knowledge, and so all are mutually deceived." (Karl Marx, 1973) The term bureaucracy is first defined in 1745 by Vincent de Gournay by adding the Greek kratos (to lead) to the French word bureau (office). Government bureaucracy is a model from the mid eighteenth century in Prussia (Jacoby, 1973).

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XVIII-lea n Prusia (Jacoby, 1973). n secolul al XIX-lea acest model a fost preluat i modernizat de Woodrow Wilson n Statele Unite ale Americii, i de marele Max Weber, sociolog german. nc din anul 1930, Laski J.H. spunea ca birocraia este o form a guvernrii n care, efectiv, domin funcionarii publici, n timp ce F. Lane afirma c birocraia nseamn un mod de administrare complex, la scar lrgit, un anumit comportament organizaional. (J.H.Laski, 1936). Mathiot considera c birocraia are avantaje apreciabile, deoarece funcionarii publici, recrutai n funcie de talentul lor, menin continuitatea statului i a serviciilor publice. (Sawicki F. and Mathiot (P.), 1999). Max Weber (1947) era de prere c birocraia reprezint tipul ideal de organizare instituional spre care tinde societatea modern: ea este caracterizat de totalitatea aptitudinilor angajailor structurai ntr-o ordine pre- stabilit i o diviziune a muncii pe birouri; dezvolt tiina administraiei prin facilitarea progresului sistemelor economice; birocraia reprezint modul cel mai eficient de organizare al colectivitii. Eficiena birocraiei fiind rezultatul modului de colaborare dintre om i main. Deci, birocraia ca baz a funcionrii instituiilor publice va impune ordine n activitatea administrativ. Weber M., afirm faptul c tipul pur birocratic de organizare administrativ era capabil s ating cel mai nalt grad de eficacitate i c este n acest sens cel mai raional mijloc cunoscut de a exercita puterea asupra fiinelor umane. Astfel Weber, formuleaz propria teorie a birocraiei care, dup prerea sa are urmtoarele valori: serviciu public oferit de profesioniti educai, recrutarea i numirea funcionarilor se va face numai pe baza meritelor dovedite, va exista neutralitate politic, care va opri administraia s intervin n politic i invers, se va asigura stabilitate pe posturi i funcii de conducere.

In the nineteenth century this model has been taken over and modernized by Woodrow Wilson in the United States, and the great Max Weber, German sociologist. Since 1930, Laski J.H. said that bureaucracy is "a form of governance in which, effectively, dominate public officials", while F. Lane says that "bureaucracy is a way of complex management, at large scale, an organizational behavior". (J.H. Laski, 1936) Mathiot considered "bureaucracy has considerable advantages because the civil servants, recruited based on their talent, maintain continuity of the state and public services". (Sawicki F. and Mathiot P., 1999). Max Weber believed that "bureaucracy is the ideal type of institutional organization towards which the modern society aspires"( Weber, M. (1947): it is characterized by all employees skills in a pre-established structure, in an order and a division of labor for each office; develops administration science by facilitating progress for economic systems; Bureaucracy is the most efficient way of organizing the community. Bureaucracy efficiency is the result of the way of collaboration between man and machine. So basic functioning bureaucracy of the public institutions will require order in the administrative activity. M. Weber, states that "purely bureaucratic type of administrative organization was able to achieve the highest degree of efficiency and that this is the most rational known way of exercising power over human beings. Thus Weber, formulates his own theory of bureaucracy which, in his opinion has the following values: public service provided by trained professionals, recruitment and appointed officials will be proved only on the merits, there is political neutrality, which stops the administration to intervene in the political and vice versa, Will ensure stability and job positions.

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STILURI DE CONDUCERE

LEADERSHIP STYLES
Seeking to explain the ways in which employees respect and obey authority, Weber describes three types of leadership styles. (Weber, M., 1958)

Dorind s explice modalitile prin care angajaii respect i se supun autoritii, Weber descrie trei tipuri de stiluri de conducere.( Weber, M. 1958).

Figura 1. Stiluri de conducere conform Weber M

Figure 1. Leadership styles according to M. Weber.

2.1

Organizaia bazat pe stilul carismatic

2.1

Organization based on charismatic style

Autoritatea se realizeaz prin calitile liderului, pe charisma sa. Ea este format din lider i discipoli. Criteriul de alegere n posturile de conducere a discipolilor, se va face n funcie de loialitatea, devotarea i supunerea fa de lider. Administrarea organizaiei bazat pe lider, nu se desfaoar pe baza de norme de conduit sau reguli, ea se bazeaz n principal doar pe dorinele liderului. El conduce dup bunul plac, dupa propriile valori i pofte. Datorit acestui fapt, aceste societi nu sunt puternice sau de durat, de obicei dispar odat cu dispariia liderului. Dac nu va aprea un alt lider, aceast societate se va putea transforma fie ntr-o organizaie tradiional, dac va exista un succesor pe baz de rudenie, fie ntr-o societate birocratic.

Authority is made by the leader qualities on his charisma. It consists of leader and followers. Criteria of choice in the management of the disciples will be based on loyalty, devotion and obedience to the leader. Management organization based leadership is not accomplished by rules of conduct or rules; it is mainly based only on the leader wishes. He runs at will, by own values and desires. Because of this, these companies are not strong or prolonged and they usually disappear with the disappearance of the leader. If there appears another leader, this company will be able to transform either into a traditional organization, if there is a successor based on kinship or a bureaucratic society.

2.2

Organizaia bazat pe stilul clasic organizaia patriarhal

2.2

Organization based on the classic style patriarchal organization

Aceast organizaie este organizaia tradiional, care este acceptat datorit faptului c omul nu este dispus la schimbare i i este mult mai uor s accepte ceva ce dintotdeauna a fost aa. Aici conteaz mai mult datinile, motenirile, i nu n ultimul rnd, rudeniile i rangul. n funcie de gradele de rudenie, se vor selecta oamenii pentru posturile de conducere, iar relaiile existente ntr-o astfel de organizaie sunt mai mult de tipul stpn supus.

This organization is traditional organization, which is supported by the fact that man is not willing to change and it is much easier to accept something that has always been so. This focuses more on traditions, heritage, and, last but not least, relatives and rank. According with the degrees of relationship, this will select people for leadership positions, and the relationships in such organizations are more like "master - subject".

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2.3

Organizaia bazat pe stilul raionallegal organizaia birocratic.

2.3

Organization based on rational-legal style - bureaucratic organization.

Max Weber afirma faptul c o organizaie birocratic este raional, legal i eficient, trsturi principale pentru societile moderne. Organizarea birocratic este cea mai eficient form de conducere i de organizare social pentru urmatoarele considerente fiecare funcionar are o autoritate clar definit, funciile de conducere fac parte dintr-o ierarhie stabilit, se tie clar cine la cine i este subordonat, exist un sistem de norme, proceduri, reguli, dup care funcioneaz societatea, n toate domeniile de activitate se va lucra cu specialiti , procesul de selecie pentru funciile de conducere se va baza pe competen i merite. Max Weber formuleaz ase principii pentru sistemele birocratice moderne (Gerth i Mills, 1968 Gerth, H.H. and Wright Mills, 1947): 1. Principiul stabilirii zonelor oficiale de jurisdicie, n funcie de legi, reguli i regulamente administrative; Autoritatea va deriva din cadrul legislativ, format din legi i regulamente scrise. 2. Principiul ierarhiei organizaionale Exist o ierarhie strict, unde conteaz funcia, managerul va avea autoritate asupra organizaiei. Managerul va delega anumite sarcini specifice, unui nivel inferior lui, spre competent rezolvare. 3. Conducerea modern ntr-un departament se bazeaz pe documente scrise ; Ele se pstreaz i se arhiveaz ntr-un anumit format, existnd n acest sens un regulament de ordine interioar n care sunt stabilite regulile de comunicare i de arhivare. Prin pstrarea documentelor scrise i posibilitatea consultrii lor de cte ori este necesar, organizaia va putea fi consecvent n aplicarea regulilor sale, avnd ntotdeauna la ndemn opiunea folosirii lor n cazul unui precedent. 4. Compartimentele de management sunt specializate; Administrarea, managementul unei organizaii necesit o pregtire de specialitate, managerul

Max Weber said that a bureaucratic organization is rational, legal and efficient, the main features of the modern societies. Bureaucratic organization is the most efficient form of government and social organization for the following reasons: each public clerk has a clearly defined authority, management functions are part of an established hierarchy, it is known clearly who to whom is subordinated, there is a system of rules, procedures, rules, after which the company is operating, in all fields of activity will work with specialists, The selection process for management positions will be based on competence and merit. Max Weber formulates six principles for modern bureaucratic systems (Gerth and Mills, 1968, Gerth, H.H. and Wright Mills, 1947): 1. Principle of establishing official areas of jurisdiction, according to laws, rules and administrative regulations; Authority will derive from the implemented legislation, consisting in written laws and regulations. 2. Organizational hierarchy principle There is a strict hierarchy, where the function counts, the manager will have authority over the organization. Manager will delegate specific tasks to a lower level, to be solved competently. 3. Modern management in a department is based on written documents; They are kept and archived in a certain format; there is in this sense a regulation of procedure which sets the rules of communication and archiving. By keeping the possibility of written documents and their consultation as necessary, the organization will be consistent in applying its rules with the option to use them always at hand. 4. Management departments are specialized; Administration and management of an organization requires specialized training, manager

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avnd o pregtire specific i de durat. Nu poate fi manager dect cel care demonstreaz aceste caliti. Nu mai exista liderul charismatic sau conducerea patriarhal 5. Diviziunea muncii este bine stabilit n cadrul organizaiei, numit i activitate pentru birocraie Exist activiti principale i activiti secundare, stabilite n funcie de importan i domeniul de activitate. 6. Conducerea departamentelor se asigur pe baza unor reguli generale, avnd la baz merite i performane profesionale. Gata cu nepotismele sau dorinele proprii, posturile de conducere se ocup doar de cei competeni. naintea teoriei birocraiei a lui Weber, Wilson subliniaz faptul c doar cei care fac politic trebuie s fie responsabili pentru politicile elaborate, funcionarii devenind responsabili pentru punerea n practic a lor. Administraia se afl dincolo de sfera politicii. Problemele administrative nu sunt probleme politice, chiar dac politicul stabilete sarcini pentru administraie, nu trebuie lsat s-i manipuleze acesteia din urm funcionarii. (Wilson, W., 1887) Wilson i Weber sunt de acord cu faptul c administraia poate fi scoas n afara sferei politice din punct de vedere instrumental i tehnic. Exist convingerea c administraia public poate fi o entitate distinct care trebuie s funcioneze n afara politicului. Modelul lui Weber spune c n administraie trebuie s se dezvolte un sistem unic bazat pe reguli clare, astfel nct organizaia i regulile ei s devin mai importante dect orice individ. Individul urmnd s se supun regulilor, normelor i procedurilor din organizaie. Ocuparea funciilor publice este o vocaie i se dobndete doar dup o calificare corespunztoare i un examen de promovare. Astzi n administraie se aplic acest model, existnd la iniierea n cariera public sintagma funcionar debutant. Acesta va parcurge un stagiu sub ndrumarea unui funcionar public definitiv, pn la urmarea definitiv pe post. De obicei, stagiul dureaz un an de zile. n momentul ocuprii unei funcii publice, funcionarul va fi fidel organizaiei n schimbul garantrii siguranei locului de munc.

training with a specific and lasting period. There may not be a manager only the one that demonstrates these qualities. There's no charismatic leader or leadership patriarchal leadership. 5. Division of labor is well established within the organization, called the "bureaucratic activity" There are main activities and secondary activities, determined according to the importance and the scope of the activity. 6. Department management is ensured on the basis of general rules, based on merit and professional performance. No more nepotisms or own desires, leadership positions are occupied only by the competent ones. Before Weber's bureaucracy theory, Wilson points out those politicians must be responsible for developed policies; staff becomes responsible for implementing them. "The administration is beyond the political sphere. Administrative problems are not political, although politics sets tasks for administration, it must not be allowed to manipulate the public clerks. "( Wilson, W, 1887) Wilson and Weber agree that the administration "can be taken outside the political sphere in terms of tools and techniques". There is the belief that government can be a distinct entity which must operate outside of politics. Weber's model says that the administration should develop a single system based on clear rules so that the organization and its rules to become more important than any individual. The individual will be subject to rules, regulations and procedures of the organization. Public office occupation is a vocation and is acquired only after an appropriate qualification and a promotion exam. Today the administration is applying this model, with the initiation in the career of a public official with the word junior. It will go through an internship under the guidance of a permanent official, till the final result until he has the permanent position in the institution. Usually the internship lasts one year. When occupying a public office, the official will be faithful to the organization in exchange for the job security guarantee.

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Salariul funcionarului public nu este acordat n funcie de volumul de munc desfurat ci n funcie de statut, de funcie i durata serviciului. Ei vor avansa astfel, de la nivelul cel mai de jos spre cele mai mari niveluri ale ierarhiei organizaionale. Deci ntregul proces de recrutare i avansare se va face dup meritele funcionarului i nu prin alte modaliti. Weber era sigur c acest principiu de specializare pe funcie va implica creterea productivitii muncii. Procesul decizional va permite realizarea unui nivel maxim de eficien din punct de vedere tehnic. El considera faptul c: Precizia, viteza, fermitatea, gradul nalt de informare, continuitatea, discreia, unitatea, subordonarea strict, reducerea conflictelor interne i costurile cu personalul reprezint caracteristici ale nivelului optim de realizat ntr-o organizaie". Organizaia birocratic astfel definit, era privit ca fiind modalitatea ideal de organizaie pentru administraia public. Prin comparaie cu politica, care este ntr-o continu schimbare, organizarea birocratic, respectnd principiile lui Weber, va putea reprezenta continuitatea att de necesar ntr-o ar. La sfritul secolului al XIX-lea Woodrow Wilson, unul dintre iniiatorii abordrii birocratice n SUA, susinea c ar putea exista o separaie clar ntre politicieni i conducerea instituiilor publice din administraie, respectiv ntre politic i misiunea instituiilor publice de implementare a acesteia.( Wilson, J. Q, 1989)

Salary of the civil servant is not paid for the volume of work performed but on the status, function and length of service. They will advance so, from the lowest to the highest levels of the organizational hierarchy. So the whole process of recruitment and promotion will be made after the civil merits and not by other means. Weber was certain that this principle will involve specialization according to labor productivity growth. Decision-making will enable the maximum level of technical efficiency. He believes that "precision, speed, firmness, high degree of information, continuity, discretion, unity, strict subordination, reduction of internal conflicts and personnel costs are features of the optimal level to achieve in an organization". Bureaucratic organization as defined above was regarded as the ideal way for government organizations. Compared to the policy that is in constant change, bureaucratic organization, respecting the principles of Weber, can be continuity so necessary in a country. In the late nineteenth century Woodrow Wilson, one of the initiators of the bureaucratic U.S. approach, argued that "there may be a clear separation between politicians and leading public institutions of government and between public institutions and political mission for its implementation."( Wilson, J. Q., 1989)

POLITICAL

ADMINISTRATION

Figura 2. Politic VS Administraie

Figure 2. Political VS Administration

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Wilson W., afirma faptul c problemele administrative nu sunt probleme politice. Cu toate c prin politici se stabilete modalitatea de desfurare a activitilor din administraia public, nu trebuie depait aceast limit, existnd pericolul de manipulare a funcionarilor publici. Ca exemplu la aceast sintagm a lui Wilson planul de aciune al unui guvern nu este elaborat de instituiile publice din administraie, dar aplicarea lui se realizeaz n administraie. Wilson aprecia ca i cauz principal n sistemul administrativ din SUA a apariiei corupiei, implicarea politicului n sistemul administrativ. Stillman Richard, n lucrarea The American Bureaucracy, 1991, distincia ntre politic i administraie reprezint o condiie fundamental pentru declanarea procesului reformelor ntr-un sistem administrativ. Separarea sistemului administrativ de politic poate conduce la dezvoltarea domeniului administraiei, la accentuarea profesionalismului funcionarilor publici din administraie i la creterea gradului de libertate al acestora n aplicarea politicilor.( Stillman R., 1991) Cea mai mare ntrebare a lui Wilson, era cum americanii ar putea ncorpora administraia public n Constituie. Recunoate dou sfere de influen: 1. politicul = alegerea guvernului este facut de alegtori 2. administraia = nu trebuie s existe amestec politic. Dac studiind administraia public am putea determina ce putere ar trebui conferit managerilor din administraie, fr a mpiedica autoritile statului s-i exercite atribuiile i s-i asume responsabilitile ce-i revin, atunci acest studiu ar fi de nepreuit. Opinia public trebuie fac parte din aceste sisteme i s devin un critic constructiv n conducerea administraiei publice. Cu toate c Wilson W., afirm faptul c administraia este n cea mai mare parte separat de politic, recunoate existena relaiei dintre administraie i politic dar sublineaz faptul c administraia are modul propriu de rezolvare a problemelor sale, nefiind un instrument pasiv, ci activ.

W. Wilson said that administrative issues are not political issues. Although through policies it is set how to conduct the public administration activities, this limit should not be exceeded, because there is a danger of manipulation of the public servants. As an example of this phrase of Wilson "... a government action plan is not developed by public administration institutions, but its application is made in administration". Wilson appreciates as the main cause in the administrative U.S. system is the incidence of corruption, political involvement in the administrative system. Richard Stillman, in the paper The American Bureaucracy, in 1991, said "the distinction between politics and administration is a prerequisite to trigger a process of reforms in the administrative system". "Separation of political administrative system may lead to development of the administration, the increased professionalism of civil servants in the administration and increase their freedom in applying the policies.(Stillman R, 1991) Most of Wilson's question was how Americans could incorporate public administration in the Constitution. Recognizes two spheres of influence: 1. Politics = government election is made by the voters 2. Administration = there should be no political interference. If studying public administration we could determine what power should be conferred to the administrative managers, without preventing the State authorities to exercise powers and assume responsibilities incumbent, then this study would be invaluable. Public opinion must be part of these systems and become a constructive critic in the public administration leadership. Although W. Wilson, states that public administration is largely separated by politics, recognizes the relationship between the administration and political but highlights the fact that the administration has its own way of solving

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Richard J. Stillman l consider pe Wilson W., fondatorul disciplinei administraiei publice americane (American Public Administration (the discipline))( Richard Stillman). Fcnd o comparaie cu un buctar, autoguvernarea nu are nevoie s-si foloseasc minile goale pentru a face tot, ci pentru a-i face treaba poate folosi manui, oale, ustensile de buctarie. Nu ar trebui s se bazeze totul pe un vot, ci ar trebui s conteze mai mult prerea celor aflai la conducerea guvernului. Datoria administraiei publice este de a spune oamenilor ce fel de administrare s-i doreasc i s cear, cum s o obin i ce tip de candidat s aleag. n concluzia lui Wilson W., studiile guvernamentale ar trebui s fie comparative, asociative, aa cum s-ar asocia ascuirea unui cuit pentru alte scopuri, nu cu dorina de ucidere. Guvernarea n Marea Britanie, se caracterizeaz printr-o limitare evident a puterilor. n Marea Britanie, n sistemele Westminster, se observ cel mai bine modalitile de influen a politicului n sfera conducerii aparatului administrativ. Exist o interdependen clar ntre atribuii i responsabiliti. Orice structur administrativ are dou atribuii: s informeze politicul asupra stadiului implementriii politicilor i s i gestioneze resursele proprii astfel nct politicile existente s poat fi implementate. Adic fiecare funcionar public este responsabil de politicile implementate i se subordoneaz direct, conform ierarhiei, efului direct i cetenilor. Exist o separare clar ntre politic i administraie. Se presupune din start faptul c administraia nu trebuie s aib nici o orientare politic, ea trebuie s-i defoare activitatea conform atribuiilor sale, nu ca urmare a interveniei politicii. Aceste sisteme Westminster introduc termenul de responsabilitate formal a ministerelor, adic fiecare ministru va rspunde personal pentru activitile sale, fiind retribuit pentru aceasta dar avnd i un sistem de stimulente care le asigur stabilitatea locului de munc, indiferent de schimbrile politice.

his problem, not a passive instrument, but active. Richard J. Stillman is considered by W. Wilson, founder of American public administration discipline (American Public Administration (the discipline)).( Richard Stillman ) By comparison with a cook, self-government does not need to use bare hands to do, but to do the job can use gloves, pots and kitchen utensils. It should not rely entirely on one vote, but it should matter more the opinion of the ones in charge of the government. The governments duty is to tell people what kind of management they should wish and ask how to get it and what type of candidate to choose. In W. Wilson conclusion, government studies should be comparative, associative, as would associate sharpening a knife for other purposes, not with desire to kill. Governance in the UK is characterized by an obvious limitation of powers. In Britain, the Westminster systems, is best seen how political influence within the administrative management. There is a clear interdependence between the tasks and responsibilities. Any administrative structure has two functions: to inform the politics of state policy implementation process and manage their own resources so that existing policies can be implemented. That every civil servant is responsible for policies and reports directly implemented, according to the hierarchy, to his superiors and to the citizens. There is a clear separation between politics and administration. It is assumed from the start that the authorities should have no political orientation; it must operate according with its duties, not because of political intervention. These Westminster systems introduce the term formal responsibility of ministries that each minister will be responsible for its activities, being rewarded for it but having a system of incentives that ensures job security, irrespective of political changes.

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CONCLUZII

CONCLUSION

Sistemul din administraia public tinde s se mreasc odat cu apariia de noi sarcini de servicii, aprute ca urmare a creterii preteniilor normale ale populaiei, prin faptul c fiecare ef de compartiment i va crete numrul propriilor subordonai, pentru a deveni mai important i mai necesar. Aceasta cretere are loc de la baz, urmnd traseul unui arbore i este generat de ceea ce A. Mathiot denumea paranoia administraiilor. Se impune concluzia de nedorit, i anume c administraia public ar avea ca i caracteristic principal sau ca menire, crearea de noi locuri de munc i nu de a satisface interesul public. Astfel se va ajunge la o administraie supradimensionat fals, bazat pe interese proprii. Toate aceste instituii create de instituii sau dovedit a fi o cheltuial imens pentru bugetul de stat deoarece nu s-a manifestat n obinerea de realizri financiare semnificative, care s acopere i s justifice eforturile materiale efectuate cu nfiinarea i dotarea lor. Extinderea aparatului birocratic public, s-a realizat din raiuni diverse care pot fi: economice, conform crora creterea economic necesit sporirea corespunztoare a numrului de posturi pentru funcionarii publici; politice, datorate extinderii aparatului birocratic, care permite clasei politice dominante s atrag noi angajai; ideologice, posibiliti de ascensiune pe scar politic. O problem real o constituie faptul ca acest sistem administrativ este reticent la schimbare, n raport cu alte tipuri de sisteme. Atitudinea conservatoare n administraie este asigurat, att de funcionarii publici care vd n schimbare o ameninare a drepturilor proprii, ct i de situaia de monopol de care beneficiaz sistemul administrativ n societate, care duce invariabil la meninerea poziiilor dobndite. Serviciile publice doar cheltuiesc bani i nu genereaz venituri. Chiar i taxele i impozitele, amenzile, sau alte modaliti de venituri ctigate, sunt de fapt rezultatul reglementat de

The public administration tends to increase with the appearance of new services tasks, the growth of normal claims of the population, the fact that each head of department will increase the number of their subordinates to become more important and necessary. This growth occurs at the base, following the path of a tree and which is generated by A. Mathiot termed "paranoid public administration." It imposes the undesirable conclusion, namely that government would like the main feature or purpose, creating new jobs and not to satisfy the public interest. This will produce an oversized fake administration, based on own interests. All these "institutions established by institutions" proved to be a huge expense to the state budget as it was expressed in obtaining significant financial achievements, covering materials and efforts made to justify the establishment and equipping them. Expanding public bureaucracies has been made of various reasons which include: economic, growth requires the corresponding increase in the number of posts for civil servants; political, due to bureaucratic expansion, which allows the dominant political class to attract new employees; Ideological, political scale growing opportunities. A real problem is the fact that the administrative system is reluctant to change, in relation to other systems. Conservative attitude of the administration is provided, so public officials who see in a change a threat to their rights and the monopoly position benefited by the administrative system in the society, leading invariably to maintaining the acquired positions. Public services just spend money and dontt generates income. Even taxes, fines, or other "income" earned, are actually the result governed

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anumite legi i norme care sunt obligatorii pentru ceteni. S lum de exemplu, cazul impozitului pe cldiri. Probabil ar fi foarte puini aceia care din responsabilitate social ar considera oportun i din proprie iniiativ ar alege sa plteasc o sum ntr-un cuantum chiar i ales de cetean, organelor statului, doar pentru c e contient c aceste taxe i impozite se folosesc pentru asigurarea serviciilor pentru ceteni. Adevrul este c orice tax i impozit trebuie s reflecte i un beneficiu pentru cel impozitat sau o obligaie, n cazul n care este o afacere. Nemulumirea cetenilor pornete din faptul real c nu ntotdeauna plata taxelor i impozitelor la zi aduce dup sine mcar o ameliorare a strii de fapt. De exemplu taxa de drumuri, contribuie pentru pensii, etc. Indiferent ct impozit i taxe se pltesc pentru drumuri, acestea sunt tot ntr-o stare proast. n anul 2009 au fost identificate 558 de impozite i taxe instituite printr-un numr de 185 de acte normative. De altfel, comisarul Leonard Orban spune: "n evaluarea Comisiei Europene exist 113 taxe n Romania, iar CE considera c este cel mai mare numr de taxe existent n Europa. Una dintre solicitrile n ceea ce privete strategia Lisabona a fost reducerea semnificativ a acestor taxe, pentru c sunt unele taxe care constau mai mult n colectarea lor dect n ceea ce se aduce".( lorylex.wordpress.com, 2009) De ce s nu recunoatem c puterea se gestioneaz cel mai eficient prin intermediul birocraiei iar oamenii se ateapt la proceduri i reguli clare i specifice atunci cnd comunic instituional. Se poate afirma c serviciile publice sunt ansambluri de persoane i lucruri create n vederea satisfacerii unei nevoi publice de ctre colectivitate public, supuse autoritii i controlului acesteia. La ora actual un sinonim al birocraiei este administraia public. Legea lui Parkinson, formulat de analistul englez C. Northcote Parkinson (1957), Volumul (cantitatea) muncii crete astfel nct s ocupe integral timpul alocat pentru realizarea obiectivului fixat".( C. N. Parkinson, 1955) Aceasta ierarhizare birocratic i promovarea se asociaz cu creterea personalului administrativ

by certain laws and rules that are compulsory for citizens. Take the case of tax on buildings. Perhaps it would be very few whom, from "social responsibility" consider desirable and from their own initiative to pay a sum in an amount even chosen by the citizens, to the state bodies, just because he is aware that the taxes are used to provide services for citizens. The truth is that any duty and tax must reflect a benefit for the one taxed or an obligation, if it is a business. Dissatisfaction comes from the real fact that not always paying the taxes on time brings any improvement of the situation. For example, road tax, pension contribution, etc. No matter how many taxes are paid for roads, they are all in a poor condition. In 2009 there were identified 558 taxes imposed by a number of 185 acts. In fact, Commissioner Leonard Orban said: "In the European Commission assessment there are 113 taxes in Romania and the EC considers that the highest number of taxes existing in Europe. One of the requests in the Lisbon strategy was a significant reduction of these fees because there are some tax collection comprised more in collecting them more than what they bring. " (lorylex.wordpress.com/2009/03/13/ce-cereromaniei-sa-reduca-semnificativ-numarul-de-taxesi-impozite/) Why not recognize that power is most effectively managed through bureaucracy and people expect clear and specific procedures and rules when institutionally communicating. We can say that public services are sets of people and things created to satisfy a public by public authority, subject to its authority and control. Nowadays bureaucracy is synonymous with public administration. Parkinson's Law, formulated by the English analyst C. Northcote Parkinson (1957) said "volume (quantity) of the work increases so that it takes the full time allocated for the fixed objective."( C. N. Parkinson, 1955) The bureaucratic hierarchy and promotion is associated with increasing administrative staff

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i fr a lua n considerare cantitatea sau calitatea muncii sau a activitilor. Creterea procentual de personal ntr-o structur de administraie public :
X=(100(2km + p)/yn)% , (1)

without taking into account the quantity or quality of the work or the activities. Increased percentage of staff in a public administration structure:
X = (100 (2km + p) / yn)%, (1)

unde, X este numrul de personal nou solicitat annual; k este numrul de personal ce ateapt promovarea prin angajarea de noi subordonai; p reprezint diferena dintre vrsta angajrii i cea a pensionrii; m este numrul de ore/persoan necesare pentru a rezolva problemele administrative din departament; n este numrul de uniti efectiv administrate; y reprezint personalul iniial total . Aplicnd legea lui Parkinson, n perioade diferite, se constat c personalul administraiei publice crete anual cu o proporie cuprins ntre 5,17% i 6,56%, indiferent de variaia cantitii de munc . Un calcul simplu ne arata ca birocraia prin personalul nou angajat, se dubleaz la fiecare 15 ani. O alt lege a lui Parkinson: incompetentul va ascunde propria incompeten prin mrirea competenelor. Un funcionar public care nu este n stare sa rezolve o sarcin, fiind incompetent, va solicita ali funcionari s rezolve aceast sarcin. Un regulament lipsit de orice sens va fi aplicat de ctre funcionar, el gndind c sigur se va gsi un superior care s-l pedepseasc dac nu aplic regula chiar dac prin aplicarea ei va strica ceva, oricnd existnd posibilitatea ascunderii greelii n spatele aplicrii legislaiei. The Peter Principle, 1969, aplicat n orice structur ierarhic, spune c fiecare individ va fi promovat pn cnd va atinge nivelul lui personal de incompeten. Acest nivel al incompetenei se va atinge din cauza faptului c la promovare nu se ine seama de cerinele postului n concordan cu calitile salariatului propus la promovare. Fiecare post de conducere presupune un anumit nivel de competen, ntr-o anumit specializare. Faptul c un ef de compartiment a condus bine cei cca. 10 oameni aflai n subordine, i a avut rezultate semnificative, nu-i confer acestuia automat calitile necesare pentru a coordona o direcie format din cca. 50 de oameni.

where, X is the number of new staff required annually; k is the number of staff waiting for promotion by hiring new subordinates; p is the difference between employment and retirement age; m is the number of hours / person required to solve administrative problems in the department; n is the number of units actually administered; y is the total initial staff. Applying Parkinson's Law, at different times, it appears that government staff with an annual increase rate between 5.17% and 6.56%, regardless of workload changes. A simple calculation shows that bureaucracy by the new staff doubles every 15 years. Another Parkinson's Law: incompetent to hide his own incompetence by increasing skills. A public official is not able to solve a task, being incompetent, will ask other officials to solve this task. A meaningless regulation will be applied by the official, thinking that surely he will find a superior to punish him if the rule applies even if its application will destroy anything, existing the possibly of hiding the mistake behind the law enforcement. The Peter Principle, 1969, applied to any hierarchical structure, says that each individual will be promoted until he reaches his own level of incompetence. This level of incompetence is reached because the promotion does not take into account the job requirements in accordance with the employee skills proposed to promote. Each management position requires a certain level of competence, to some degree. The fact that a head of department who led well about. 10 people with significant results, not automatically has the skills needed to coordinate a direction consisting of approximately 50 people.

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n acest sens, considera c membrii unei organizaii vor fi promovai pn la nivelul lor maxim de competen, dup care orice alt promovare ulterioar i va ridica la un nivel la care devin incompeteni. Concluzie : Ideal ar fi ca salariaii care exceleaz pe un anumit post care presupune anumite competene s fie recompensai prin creteri salariale i nu prin promovare. Faptul c eti un bun profesionist n domeniul tu de activitate nu te va face s devii un profesor capabil s invei ceea ce tii, altfel spus de exemplu n domeniul sportului, orice juctor ct de bun nu va deveni la data retragerii un antrenor excepional. Aici vor intervenii pe lng cunoaterea obiectului propriu de activitate i anumite caliti personale, pe care le dein, alii le dobndesc sau pur i simplu nu le dein. Principiul lui Dilbert se refer la o teorie satiric din anii 1990. Conform acesteia, companiile au tendina s promoveze cei mai slabi angajai n poziii de management, pentru a preveni afectarea experienei consumatorilor de ctre respectivii angajai. Termenul a fost introdus de ctre Scott Adams, un absolvent de la Berkeley. Adams explic astfel: Cei mai ineficieni lucrtori sunt transferai, n mod sistematic, ntr-o funcie unde pot face cele mai mici pagube: n management. E ca i cum am fi ntors regulile naturii cu susul n jos, Identificm i promovm n mod sistematic oamenii cu cele mai slabe deprinderi. Principiul lui Dilbert este o variaie a Principiului lui Peter.( ro.Wikipedia.org) Aplicnd acest principiu oamenilor, ca i rezultat al acestor teorii, este faptul c o persoan care i atinge pragul de incompeten va gsi alte lucruri de fcut pentru a se simi eficient, i se vor gsi efi dornici care s o promoveze, n nici un caz nu-i va recunoate incompetena. Interesante sunt cele 3 legi i cele 2 axiome ale lui Parkinson: 1. Prima lege a lui Parkinson Orice activitate se extinde att ct s umple ntregul timp afectat efecturii ei. 2. A doua lege a lui Parkinson Cheltuielile cresc att ct s egaleze veniturile. 3. A treia lege a lui Parkinson Expansiunea nseamn complexitate i complexitatea decdere;

In this respect, consider that the members of an organization will be promoted up to their maximum level of competence, and then any future promotions will raise them to a level where they become incompetent. Conclusion: Ideally, employees who excel in a job that requires certain skills to be rewarded by salary increases and not by promotion. Being a professional in your field of activity will not make you become a teacher able to teach what you know, that being said for example in sport, any good player will not become a good a coach after he retires. Knowing the the main objective of activity will intervene next to certain personal qualities, which they hold, others acquire them or simply they do not possess them. Dilbert's principle refers to a satirical theory of the 1990s. According to this, companies tend to promote the worst employees in management positions, to prevent damage to consumer experience by those employees. The term was introduced by Scott Adams, a graduate from Berkeley. Adams explains: "The most ineffective workers are transferred systematically, in a position where they can lower the damage: the management. It's like I have turned the nature rules upside down "," Identify and systematically promote the people with the worst skills ". Dilbert's Principle is a variation of the Peter Principle.( ro.Wikipedia.org) Applying this principle to the people, as a result of these theories is that a person who reaches the threshold of incompetence will find other things to do in order to feel effective, and will find leaders willing to promote it, in any case will not recognize incompetence. Interesting are the three laws and two Parkinson's axioms: 1. Parkinson's first law - Any activity extends long enough to fill the entire time affected to perform it. 2. Parkinson's Second Law - costs increase so as to match income. 3. Parkinson's Third Law - Expansion means complexity and complexity decay, or, quite simply,

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sau, i mai simplu, cu ct mai complex, cu att mai aproape de moarte. Axioma 1 O oficialitate dorete s-i sporeasc subordonaii i nu rivalii. Axioma 2 Oficialitile i dau de lucru unele altora. n concluzie, fiecare structur birocratic este format sau din funcionari care aplic regulamentele fr s gndeasc sau din funcionari incompeteni care vor crea un numr nou de norme, proceduri i reguli prin care vor urmri s-i mreasc echipele. n general, activitatea administraiei publice este perceput de ctre ceteni ntr-un mod negativ, ea este n slujba proprie i nu deservete interesele generale ale cetenilor. De cele mai multe ori este vzut ca a fi corupt, puternic birocratizat, avnd n structurile ei mai muli funcionari incompeteni dect competeni. Administraia local nu are specialiti pregtii n toate domeniile administrrii locale, de multe ori posturile vacante se scot la concurs pe specialitatea persoanei care se dorete a fi angajat, nicidecum pe specialitatea respectivului post. Faptul c administraia public deine monopolul n furnizarea de servicii sau produse care de obicei nu sunt solicitate de ctre ceteni, ci de cele mai multe ori sunt taxe i impozite impuse de ctre stat, dezvolt agresivitatea ceteanului de rnd n faa funcionarului aflat la ghieu. De ce, dac tot trebuie s pltesc taxe legiferate prin legi i ordonane, mai trebuie s fiu i plimbat de la un ghieu la altul i tratat cu indiferena sau ngmfare? Sunt convins c fiecare dintre noi a apelat mcar o dat la instituiile statului pentru a-i rezolva ceva, fie pentru un drept sau o obligaie legiferat de stat. Noi, cetenii, suntem liberi s gndim astfel: Am dreptul la alocaie pentru copil, dar de ce pentru ca s-o primesc trebuie s completez i s depun o grmad de acte? De ce pentru a-mi construi o cas pe terenul proprietate, trebuie s obin certificat i autorizaie de construire, deci trebuie s depun documentaii i s solicit acest lucru i s pltesc tot felul de taxe statului? Nu neleg de ce trebuie sa pltesc impozit pentru maina mea personal, deoarece starea drumurilor unde ar trebui s se simt aceast tax, este din ce n ce mai proast, dar ca un bun

the more complex, the closer to death. Axiom 1 - An official wants to increase subordinates, not rivals. Axiom 2 - Officials pass their work from one to another. In conclusion, every bureaucratic structure is composed of officials who apply regulations without thinking or from incompetent officials that will create a new number of criteria, procedures and rules that will seek to expand their teams. In general, public administration activity is perceived by citizens in a negative way, it is self serving and not serving the general interests of citizens. It is often seen as being corrupt, highly bureaucratized, having in their structures more incompetent than competent officials. Local administration has specialists trained in all areas of local administration, often vacancies are made on the specialty that person has prepared and wants to be hired, not the specialty of that position. The fact that government has a monopoly in providing services which are usually not required by citizens, but often are taxes imposed by the state, develops the aggressive behaviour of the citizen towards the official on the counter. Why, if you still have to pay taxes enacted by laws and ordinances, and have to be walked from one window to another and treated with indifference or pride? I am convinced that each of us has turned to state institutions at least once to solve something, either for a right or a state enacted obligation. We, citizens are free to think so: Am I entitled to child benefit, but why for getting it I must complete and submit a bunch of papers? Why to build me a house on my property, I must obtain a certificate and buildings permit, so I must submit documentation and request it and pay all kinds of state taxes? I do not understand why I should pay taxes on my own car because the roads where this tax should be used are becoming worse, but as a good citizen I go to Finance, stand in lines, walk from a window to another and, if I am "lucky", I manage

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cetean m deplasez la Finane, stau la cozi, m las plimbat de la un ghieu la altul i, dac sunt norocos, reuesc s depun banii i, n funcie de tratamentul primit de la funcionari, sunt bine sau prost dispus toat ziua. Mai sunt multe exemple de genul acesta, exemple reale din viaa de zi cu zi, lista rmne deschis.

to deposit the money and, according to the "treatment" received from the officials, I am in a good or bad mood all day. There are many examples like that, real examples from daily life, the list remains open.

BIBLIOGRAFIE / REFERENCES
Alexandru, I., Administraia public. Teorii, realiti, perspective., Bucureti, Editura Lumina Lex, 1999, p. 293. Androniceanu, A., Management public: studii de caz din instituii i autoriti ale administraiei publice. Bucureti: Editura Universitara, 2004. Bonnet, Fr., Management de ladministration, Paris, Editura De Boeck Universit, 1993, p. 47. Buhler, K., Die Sprachtheorie, Encyclopedia od the Social Scienties, vol III, New York and London, 1934 Jacoby, H., The Bureaucrasation of the World, Berkeley, CA: University of California Press, 1973. Lane, F., Current Issues in Public Administration, 6th Edition. New York: Bedford/St. Martin: pag. 38-57. Laski, H., Bureaucracy, Encyclopedia of the Social Sciences. Marx, K., Hal Draper, Karl Marx's Theory of Revolution, Volume 1: State and Bureaucracy. New York: Monthly Review Press, 1979. Metcalfe, L., i Richards, S., Improving public management. 2nd. London, SAGE Publications, 1993.. Moldoveanu, G., & Dobrin, C., Managementul calitii n sectorul public. Bucureti, Editura ASE, 2003. Northcote, P., Parkinson's Law, or The Pursuit of Progress, 1957. Pareto V., Trait de sociologie gnrale, Paris, Librairie Payot, 1919, p. 1306-1308 Schiavo-Campo S., Strenghtening Performance in Public Expenditure Management, 1997 Stewart i Walsh, Performance Meausurement, 1994 Stillman R.J., Public Administration: Concepts & Cases, 7/e & 8/e. Stillman R.J, The American Bureaucracy, 1991. Trice, H. M., Beyer, J. M., Studying Organizational Cultures through Rites and Ceremonies, Academy of Management Review 9, 1984. Weber, M., The Theory of Social and Economic Organization. Translated by A.M. Henderson and Talcott Parsons. London: Collier Macmillan Publishers, 1947.