The influence of authoritarian organizational culture in the South Korean civil service: organization of land management, organization management, human resource management, healthcare and social welfare

Park, Jungho (2019). The influence of authoritarian organizational culture in the South Korean civil service: organization of land management, organization management, human resource management, healthcare and social welfare. University of Birmingham. Ph.D.

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Abstract

In earlier work by the author, human resource management in the South Korean public sector was analysed in terms of professionalism, sustainability, transparency, motivation and support systems (Park, 2015). One finding was that when the central government establishes and introduces a new system in the public sector, even though the new system has limitations and the majority of staff know the limitations they rarely report them to their seniors or the central government for solution. The earlier study suggested that the finding may originate from an organizational culture based on military style.
Many civil servants have also pointed out the necessity of escape from an administrative culture based on authoritarianism for advanced administration, but the administrative culture has not been improved, according to surveys conducted between 2007 and 2016 (Kim, 2016). As for authoritarian organizational culture, this study also has referred to experience of military service, the past military regime, Confucianism, the East Asian model and Asian values. From this point of view, this study has reviewed authoritarian organizational culture conceptually and analysed the nature and effects of organizational culture in the South Korean civil service in terms of authoritarianism.
For this study, there are five research questions: (1) What is the nature of authoritarian organizational culture?; (2) To what extent is authoritarian organizational culture present in the South Korean civil service?; (3) What are the effects of authoritarian organizational culture in the South Korean civil service?; (4) Has authoritarian organizational culture changed in the South Korean civil service?; and (5) How does authoritarian organizational culture operate in the South Korean civil service?
Authoritarian organizational culture has been conceptualized in terms of collectivism, Confucianism, paternalism and bureaucracy in this study. Based on the conceptual approach, the key element of authoritarian organizational culture is hierarchy and conformity. In particular, the top-down approach is strong, while the bottom-up approach is weak in the hierarchical structure. Aside from the two key elements, other elements are also involved in authoritarian organizational culture such as loyalty, respect, group orientation, expertise, and power and resource inequality.
When beginning this study, finding a strong authoritarian organizational culture in the South Korean civil service was expected. According to the findings, however, the organizational culture in the South Korean civil service is not as authoritarian as civil servants think, although the civil service does have some residual authoritarian characteristics. Around 70% of the respondents said that the South Korean civil service shows authoritarian tendencies, when asked directly. However, the response in most general scenarios showed flexible and reasonable tendencies. On the other hand, the response in more serious scenarios, such as the audit scenario, did show authoritarian tendencies.
Over 80% of the survey respondents perceived authoritarian organizational culture negatively. Inefficiency, low morale, lack of creativity and communication, and risk of corruption and improper decision-making were also referred to as negative effects. On the other hand, positive effects were also pointed out, such as rapidity, efficiency, convenience, high morale, organization management and cohesion of professional or small groups. Efficiency and morale were referred to from both negative and positive perspectives.
Over 60% of the survey respondents in this study said that the organizational culture in the South Korean civil service has changed towards a flexible culture. On the other hand, one finding suggested that recently the younger generation has shown authoritarian tendencies, while the organizational culture has changed from an authoritarian to a flexible style. Given the two perspectives, it could be argued that organizational culture has changed from an authoritarian to a flexible organizational culture but the change does not mean that younger staff are less authoritarian than older staff.
Political elements and promotion are deeply related with the operation of authoritarian organizational culture. For instance, elections are of paramount importance to politicians and certain interest groups are highly influential in elections. In the relationship between politicians and interest groups, politicians ask for the support of interest groups during an election period. After the elections, the group demands protection and expansion of their interests from the (elected) politicians, and the elected politicians, with the support of the interest group, instruct civil servants to meet these demands directly and indirectly. In the civil service, compliance with instructions from the top level is highly important because it affects not only current but also future human resource affairs directly or indirectly, such as promotion, disciplinary measures and transfer. In order to be promoted or not to suffer disadvantages, civil servants follow even political or controversial instructions, which eventually strengthens and maintains the authoritarian organizational culture in the civil service.
In particular, there are more possibilities for authoritarian organizational culture to work through promotion and political elements at the senior level than the junior level. There are few possibilities for politics and promotion to be used to maintain and reinforce authoritarianism at the junior level because there are many positions at junior levels and junior civil servants can be promoted without political elements. On the other hand, there are comparatively more possibilities for politics and promotion to be used to maintain and reinforce authoritarianism at the senior level. The senior has more authority and power than the junior, while senior positions are few. Therefore, political elements could be deeply involved in promotion to senior positions, although not all promotions at the senior levels are closely related with political elements. In addition, some civil servants could prepare for or consider political activities, such as running for election for a certain political party.

Type of Work:

Thesis (Doctorates > Ph.D.)

Award Type:

Doctorates > Ph.D.

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