Niklas Luhmann’s bestuurswetenschappelijke theorie

Abstract

A critical review of Niklas Luhmann’s Theorie der Venvaltungswissenschaft (Berlin, 1966), is presented. Public administration has so far been the subject of two different kinds of approach; the prescriptive method, based on the construction of purely rational models of organization, and the empirical method which emphasizes the causal explanation and prediction of actual social behaviour in organizational structures. Luhmann attempts to make a synthesis between these two opposing approaches. In modern democratic nations, parliament determines the issues that have to be dealt with. The actual execution is the specific function of the public administrative system. Its decision-making function consists of a standardized process of communication and interaction in which facts are collected, selected and elaborated. This decision-making function of the public administrative system should be rationalized i.e. increased in capacity as much as possible without endangering the continuity of the system. Continuity of the public administrative system is essential for the survival of complex and rapidly changing societies. Therefore when confronted with successive issues of a different nature, the structure of the system may be changed only partially. Empirical knowledge of the social reality yields a range of possible alternatives and their effects. The prescriptive approach will single out that alternative which is most suitable for a rational solution of the problem at hand, while the continuing existence of the system as a whole is guaranteed. It is pointed out that Luhmarm, in his analysis, overlooks the fact that the vested interests of the management of the system may obstruct structural changes. This is related to the essential omission in Luhmann’s theory, viz. the execution of power. A social structure is not only held together by norm internalization based on free choice, but also by the execution of power. By neglecting this basic fact, Luhmann’s theory becomes one-sided and liableto abuse by top management.