Click the star to add/remove an item to/from your individual schedule.
You need to be logged in to avail of this functionality.
Log in
- Convenors:
-
Karin Geuijen
(Utrecht University/VU University Amsterdam)
Renita Thedvall (Stockholm University)
Send message to Convenors
- Discussant:
-
Cris Shore
(Goldsmiths)
- Format:
- Workshops
- Location:
- 116
- Sessions:
- Wednesday 27 August, -, -, -
Time zone: Europe/Ljubljana
Short Abstract:
Bureaucrats are among the most ubiquitous and important players in national and inter/transnational organisations. Despite their importance relatively little is known about who they are and what they do. This workshop invites a wide range of papers that shed light on these cultures of bureaucracy.
Long Abstract:
Bureaucrats working within various organisations, such as national governments, the European Union (EU), the World Bank and the European Trade Union Confederation (ETUC) are among the most ubiquitous and important players in global governance. Within, for example, the formal EU structures, they are involved in a myriad of expert groups, working parties and committees. In these various groups, their roles vary from preparing decisions and giving advice to approving proposals on behalf of their political superiors and implementing decisions. In the popular view, bureaucrats are often seen as the epitome of what Herzfeld (1992: 71) identifies as the stereotype of a bureaucrat, namely a rigid, inflexible, boring person working for his bureau rather than its clients or society at large. However, the bureaucratic stereotype only goes so far in describing the real world of bureaucrats in policymaking processes. Overwhelmingly, bureaucratic players in policy processes are, of necessity, flexible people. They do not just apply rules. They take part in complex policymaking and organisational games. Despite the importance of bureaucrats, relatively little is known about who they are and what they do. Their role in the process tends to remain black boxed. This workshop invites a wide range of papers that shed light on these cultures of bureaucracy. Who are these people? What do they do? How does power enter into their work? What challenges/opportunities do their networks pose? How does their work contribute to, for example, Europeanisation processes?
Accepted papers:
Session 1 Wednesday 27 August, 2008, -Paper short abstract:
Turkey is touted as a prospective member of the EU whose application is sure to fail, yet there are many forces at work to see the country through accession. This paper presents preliminary findings on negotiations of Turkish private and public interest representatives and their target audience at the European supranational level of techno-bureaucracy.
Paper long abstract:
Turkey is often touted as a prospective member of the European Union (EU) whose application is sure to fail, due to its perceived differences in socio-economic structure/"too poor," demographic profile/"too large," and cultural values/"too Muslim". Yet, there are many forces at work in Turkey and across the EU-27 countries to see Turkey through to accession or to bar it from membership. Anthropological studies of the EU and Europeanization have shown that European integration reconfigures forms of belonging and governance practices as a result of negotiations between actors and agents from supranational, national, and sub-state levels. Turkey's European integration is increasingly facilitated by groups who lobby European publics and governments, and EU institutions in Brussels for public and private interests of various Turkish and European constituencies. This paper presents preliminary findings of an ongoing ethnographic study of how Turkish lobbying and governmental groups and their target audience negotiate issues of identity and sovereignty within the techno-bureaucratic environment of policy-making at the European supranational level in Brussels. It seeks to attain an account of Turkish Europeanization, a contested field of power within which 'a common European interest' is articulated from a historically-contingent and culturally-informed perspective. It provides a partial assessment of lobbyists' expertise in convincing European/Turkish publics that Turkey's European integration will bring economic prosperity and cultural enrichment without threatening existing lifeworlds. This paper also investigates ways in which Turkish Europeanization is moulded by the transnational communities of Turks and Europeans of Turkish background who are resident in Brussels.
Paper short abstract:
In Portuguese Police urban force the concept of 'transparency' can be analytically useful as long as we combine it with the concept of 'visibility'. In this paper I propose to think about problems of policing policy and bureaucratic changes from an ethnographic perspective.
Paper long abstract:
This paper aims to study particular aspects of the engineering of Portuguese police force policy and adaptable bureaucratic changes to it.
Although opacity is underlined in police studies, I believe that the focus should rather be put on visibility and the ways this policy gains form beyond the so called process of making the police more transparent. I will show how the Portuguese police force produce visibility in two strategic ways: on street level policing and in criminal statistics. I conclude that both processes, especially the "statistics-making" policy, can serve its opposite purpose, underlining professional opacity instead of the so intended transparency of the police force.
Paper short abstract:
The presentation deals with the interactions between bureaucrats and their clienteles and the registers of interaction they employ. Therefore I will focus on a case study of interaction between police agents and prostitutes in the context the struggle against procuration.
Paper long abstract:
My presentation is based on an ethnographic fieldwork of the French police in a judiciary service in charge of the struggle against procuration. I focus on the relationships between police agents and their clienteles and on the registers of interaction they employ.
The interactions between bureaucrats and their clienteles I have observed through police agents´ actions and discourses empirically materialize this bureaucratic relationship.
Whereas the Weberian ideal type pictures the bureaucratic relationship as dispassionate, the interactions I observed appear to be familiar, friendly, or on the contrary conflictuous, even violent. In the light of this, I pretend neither to falsify nor to propose any ideal type of bureaucratic relationship.
I analyse how registers of interaction are produced, negotiated or imposed through different factors. We thus point out the crossing influences of the institutional aims of the relationships (e.g. to collect some piece of information, complaints, evidences, confessions of guilt or complicity), the institutional frames (not only material inside and outside the police station but also during custodies or informal meetings with an informant), and the actors conditioned by their individual dispositions (class, race, gender, role in the interaction : police agent or citizen).
Finally we aim at understanding how such registers of interaction which are personally, emotionally or theatrically invested by the protganists become not only probable but also a necessary condition of the action of the police.
Paper short abstract:
Following several ethnographic vignettes collected from my last years’ fieldtrips on the everyday life of border’s bureaucrats, I examine how a the state and state-like abstractions such as EU are produced and reproduced in the locality of a very particular field site: the border post.
Paper long abstract:
Herzfeld's ground-breaking considerations of bureaucracy have been widely developed in ethnographic research. As a reflection of a general cultural turn in social sciences, by now there is a growing and very diverse anthropological literature which tries to avoid ideal typical and fixist definitions of the state. How much can we objectify the state and to what extent can we argue its disappearance, as anthropologists? My paper addresses this kind of questions from a very particular case of border-making process: Romania-Serbia border in the aftermath of the last EU enlargement. My paper looks for the state at alternative places, as embodied and represented in the interactions and, more generally, social relations between border guards and border crossers. Following several ethnographic vignettes collected from my last years' fieldtrips on the everyday life of border's bureaucrats, I examine how a the state and state-like abstractions such as EU are produced and reproduced in the locality of a very particular field site: the border post. Furthermore, my paper wants to interrogate and leave open the question of how these processes change scale and positionality of the borderland I inquire into.
Paper short abstract:
The paper discusses concepts that can help us understand the complex working practices of bureaucrats. It draws upon empirical material generated in an ethnographic study concerning how five Danish governmental organizations calculate communication. The study is inspired by the research field STS.
Paper long abstract:
For governmental organizations it has become crucial to be able to calculate the effects of the communicative solutions employed. This is due mainly to two broad tendencies: New Public Management (NPM) and the so-called soft governance.
The PhD project I am working on investigates ethnographically how five, governmental organizations within the Danish Central Administration calculate communication. This is done with analytical inspiration from the research field STS. Not surprisingly, it is difficult to calculate communication. Communication is a slippery phenomenon and therefore there are no easy answers to questions about what and how to calculate. To calculate demands an innovative bureaucrat. At the same time the traditional bureaucratic hierarchy has not disappeared. How to be innovative and obey hierarchy at the same time?
In the paper proposed here I wish to discuss concepts that can grasp the often conflicting content of bureaucrats' working practices, in this case practices of calculating communication. These concepts include the co-existence of management models (Olsen 2006) in the working practices of the communications units of the governmental organizations, calculations of communication as boundary objects (Star & Bowker 1999), and the communications units of the governmental organizations as centres of calculation (Latour 1986). These three concepts all highlight the many, heterogeneous actants (colleges, citizens, documents, working environments, etc.) bureaucrats relate to in their working practices. Thereby, they prevent an analysis that creates too unambiguous understandings of bureaucrats and their work.
The paper will draw extensively on the empirical material generated in the fieldwork.
Paper short abstract:
This paper attends to rights based trainings of bureaucrats as sites where terms of the governmental is reiterated and discussed by the current political and governmental actors. It analyzes how ideas and imaginaries of bureaucrats, bureaucracy and governing map out the meaning of the political in post-1980 Turkey.
Paper long abstract:
Turkey's EU membership is commonly discussed in terms of the country's compliance with the "Copenhagen Criteria." Complying with these norms is seen as a pathway for the country's governing apparatus to adopt higher standard of government, with respect to human rights and civil liberties.
According to the general accession framework, keeping up with European standards of "good governance" requires the development of state institutions via "capacity building" projects enabled by EU funds in Turkey. These projects mainly take the form of in-service trainings directed towards the bureaucrats on rights based issues (such as domestic violence, refugee law, juvenile justice etc.) for which they are held accountable. Training projects, co-run by national and international human rights NGOs, constitute significant sites of state-NGO interaction. These unusual assemblages serve as forums where two groups of actors - bureaucrats and activists - typically considered as each others' constitutive outside, meet to rehearse their long held convictions about each other as they discuss sensitive subjects related to the country's governance. These mutual convictions allude to a repertoire shaped by histories and imaginaries about who bureaucrats are and what bureaucracy in Turkey corresponds to.
This paper attends to rights based trainings of bureaucrats as sites where terms of the governmental - seen as distinct from the political - is reiterated and discussed by the current political and governmental actors. It analyzes how ideas and imaginaries of bureaucrats, bureaucracy and governing map out the meaning of the political in post-1980 Turkey.
Paper short abstract:
In metaorganisations meetings and decision making are intimately connected. The paper examines how the meeting format shapes the decision making process in committees in the EU. These meetings may be seen as instances of bureaucracy, since its members' only meet at specific times to make decisions.
Paper long abstract:
The paper examines how the meeting format shapes the decision making process in international committees, working groups and councils in the European Union. Here, particular focus is placed on an EU committee meeting, where bureaucrats from the member states and the European Commission meet to negotiate on EU employment policy. In international organisations meetings and decision-making are intimately connected. Members may be dispersed all over the world and the only times they meet face-to-face are often in pre-scheduled meetings. In this sense the meetings I have studied may be seen as 'instances of bureaucracy'. Instances, since the representatives of the member states and the Commission only meet at specific times during the year to make policies and form decisions. The focus here is on formal, scheduled meetings with formal rules for making decisions. It is bureaucracy in the weberian sense with meetings governed by explicit rules, participants regarded as experts, and written documents as the product of the meetings. The empirical material in the study is mainly based on following the decision-making process in different EU committees, working groups and council meetings. To study this I have followed the work of in different EU committee, working group and council meetings through a trainee position at the European Commission and then by following the Swedish delegation to the EU committee meetings.
Paper short abstract:
Dutch civil servants working in EU settings find themselves without a mandate in one third of the cases. In order to be able to maintain their self-identification as national representatives they piece together a position and identify the result of that 'bricolage' as being the 'national position'.
Paper long abstract:
Doing business on European police co-operation is not an easy thing for Dutch Eurocrats. A cogent policy framework and attendant set of institutions is yet to evolve. Moreover, those Eurocrats are more often than not left without political direction in preparing for encounters with their colleagues from other member states. For departmental civil servants, acting without a clear sense of political direction amounts to 'flying blind'. What coping mechanisms have they developed for dealing with this normatively anomalous situation? And what does this mean - for the shaping of public policy and for the nature of the politics/administration nexus within the executive branch?
To grasp the logic of how civil servants in this setting piece together an understanding of the situation and of possible courses of action we turn to Levi-Strauss' concept of 'bricolage'. Eurocrats can be thought of as bricoleurs in the sense that they work with instruments and resources from the national setting and adopt them to a Europeanized setting. In this process they piece together several resources. Amongst those are a. (inter)departmental bargains among civil servants; b. meetings with experts from the field; c. policy documents on related subjects; d. decisions taken earlier in several forums; and e. political positions taken on related subjects (by a minister, or sometimes opposing positions taken by a majority in parliament). In this new setting 'professional bricolage' seems to replace 'professional responsiveness to political direction' as the main principle of civil service practices.
Dutch Eurocrats who operate in areas without (sufficient) political steering identify themselves as national representatives, not as experts, nor as supranationals. The problem for them in the field of European police cooperation is that there is no given political position to represent. At the national as well as on the European level there is no political will to develop a coherent perspective on greater cooperation. Working in a setting which requires them to act as national representatives they themselves construct the national position that they subsequently go on to represent. In this way their dominant identity of being a national civil servant can be maintained.
Paper short abstract:
In this paper I describe the strategies of symbolical performance among EU Commission civil servants. Drawing on theories from postcolonial studies and Bourdieu’s habitus concept I explore how categories of “east” and “west”, “new” and “old”, “backward” and “modern”, “emotional” and “rational” are symbolically evoked by Commission’s bureaucrats.
Paper long abstract:
The European Commission civil servants constitute, within the apparatus of the European Union, a large group that enjoys the reputation of bureaucratic elite. However, it is not a homogeneous group. Alongside old national identifications, the fall of the "iron curtain" and the European Union's new member-states have led to new stratifications among the EC civil servants themselves.
In this paper I will describe the strategies of symbolical performance among EU-Commission civil servants. Drawing on theories from postcolonial studies and Bourdieu's concept of habitus I will explore how the categories of "east" and "west", "new" and "old", "backward" and "modern", "emotional" and "rational" are symbolically evoked by Commission's bureaucrats. How do "old" and "new" perceive themselves and how are they perceived and what practices are linked to this (self) perception? How do the practices of the EU functionaries - not only in the political culture of the EU Commission, but also in the everyday life of fonctionnaires in Brussels - reveal distinctions between the old and the new? What meanings does "Europeanness" receive in the field of the EC bureaucracy?
I will illustrate the relations between civil servants from old EU member states (Germany and France) and Polish nationals within the Commission. I will explore the inner structure of Polish groups, their dynamics and relations with other groups of "old" fonctionnaires in order to sketch power relations between old and new EC civil servants.
The paper is based on 9 months of fieldwork carried out in Brussels between October 2007 and May 2008.