Vol.1, No 1, 1997 pp. 183 - 193
UDC: 342.51:35.076
CHALLENGES OF GOVERNMENT RECONSTRUCTION:
TURBULENCE IN ADMINISTRATIVE TRANSITION
(From Administration as an Instrument of Government
to Administration as Public Service)
Stevan Lilić
Belgrade University, Law School, Yugoslavia
Abstract. Modern administrative systems derive from a relatively
nondifferentiated state organizational structure of the absolutistic states
of the seventeenth century. Reactions against the administration as the
monarch's "personal instrument of government" were inspired by the doctrines
of the separation of powers and realized by revolutions at the end of the
eighteenth century in Europe and America. However, as the administration
steadily became an equal partner in the division of powers, the previous
view of the administration as a "suspicious instrument of the monarch"
started radically to change.
Today, the experience of developed countries indicate that an administrative
system cannot be conceived as an "instrument" or "apparatus" (e.g. of the
ruling class), nor can a modern administrative system be projected only
as a legalistic normative model of structures and procedures (i.e. administrative
agencies and the administrative process). Administrative models that are
common to the developed countries (particularly in Europe) derive from
the concept of the administration's social function. Under the conditions
of a developed material and cultural social environment, state and government
"transform" from an instrument of power and repression into an organization
with a social function of rendering public services (e.g. education, medical
care, scientific research and development, environmental protection, economic
development, etc.) to citizens and other subjects in the social environment
and protecting human rights. After the fall of the Berlin Wall in 1989,
many former communist countries are going through a period of social and
political turbulence that, inter alia, reflect on their administrative
systems. The situation varies from country to country. References to the
state of affairs of the administration in Yugoslavia (Serbia and Montenegro)
are also given.
Key words: administration, separation of power, social
function of administration, administrative transition
NEMIRI U UPRAVNOJ TRANZICIJI
(Od uprave kao instrumenta vladavine do uprave
kao javne službe)
Savremeni upravni sistemi proizilaze iz relativno neizdiferencirane državne
organizacione strukture apsolutističkih država XVII veka. Reakcije protiv
uprave kao monarhovog "ličnog instrumenta vladavine" bile su izazvane doktrinama
podele vlasti i ostvarene revolucijama XVIII veka u Evropi i Americi. Međutim,
kako je uprava sve više postajala ravnopravan partner u podeli vlasti,
prethodno shvatanje uprave kao "sumnjičavog instrumenta monarha" počelo
je znatno da se menja.
Iskustvo razvijenih država danas ukazuje na to da neki upravni sistem
ne može da se zamisli kao "instrument" ili "aparat" (npr. vladajuće klase)
niti se savremeni upravni sistem može projektovati samo kao zakonski normativni
model struktura i procedura (tj. upravna sredstva i upravni proces). Upravni
modeli koji su zajednički razvijenim zemljama (posebno u Evropi) proizilaze
iz koncepcije društvene funkcije uprave. U uslovima razvijenog materijala
i kulturne društvene sredine, država i vladavina se "transformišu" od instrumenta
vlasti i represije u organizaciju sa društvenom funkcijom pružanja javnih
usluga (npr. obrazovanje, medicinska briga, naučno istraživanje i razvoj,
zaštita sredine, privredni razvoj, itd.) građanima i drugim subjektima
u društvenoj sredini i zaštiti ljudskih prava. Posle pada berlinskog zida
1989. godine, mnoge ranije komunističke zemlje prolaze kroz period društvenih
i političkih nemira koji, između ostalog, odražavaju njihove upravne sisteme.
Situacija varira od zemlje do zemlje. Date su i reference o stanju poslova
u upravi u Jugoslaviji (Srbiji i Crnoj Gori).
Ključne reči: uprava, podela vlasti, društvena funkcija uprave,
upravna tranzicija
