The system of local government is presently undergoing a deep reforming process which aims at objectives of paramount importance, the achievement of which depends, more than ever, on substantial changes brought to the values and behaviour patterns specific of the organisational culture. Therefore the organisational culture is a concept to be more and more present, these days, in the field of concern of institutions active in the public service of the local government of Romania. These organisations and institutions have a lot to recoup when it comes to creating new modern values and organisational routines meeting the European public service standards and to promoting competence, transparency, responsibility and efficiency of the administration system.organisational culture, local government, institutional management, public service

Camelia STEFANESCU

Stelian PÂNZARU

English

Research Papers in Economics

 
Review of General Management                                                Volume 10, Issue 2, Year 2009  89 
 
 
SPECIFIC FEATURES OF THE ORGANISATIONAL CULTURE OF 
THE LOCAL GOVERNMENT 
 
Camelia ŞTEFĂNESCU 
„Spiru Haret” University Bucharest, Romania 
Faculty of Management Braşov 
stefanescucamelia@ymail.com 
Stelian PÂNZARU 
„Spiru Haret” University Bucharest, Romania 
Faculty of Management Braşov 
panzarus@gmail.com 
 
 
Abstract  
The system of local government is presently undergoing a deep reforming process which 
aims at objectives of paramount importance, the achievement of which depends, more than 
ever, on substantial changes brought to the values and behaviour patterns specific of the 
organisational culture. Therefore the organisational culture is a concept to be more and more 
present, these days, in the field of concern of institutions active in the public service of the 
local government of Romania. These organisations and institutions have a lot to recoup when 
it comes to creating new modern values and organisational routines meeting the European 
public  service  standards  and  to  promoting  competence,  transparency,  responsibility  and 
efficiency of the administration system.  
 
Keywords: organisational culture, local government, institutional management, public 
service. 
 
JEL Classification: M14, D73,  J45. 
 
1.  The Organisational Culture – Features and Determining Factors 
 
The organisational culture represents one of the most recent domains of institutional 
management bringing forth a time shaped set of values, beliefs, aspirations and conducts  
Volume 10, Issue 2, Year 2009                                                        Review of General Management  90 
which  determine  and  define  its  organisational  life.  The  same  elements  also  define  the 
conduct of the human factor within the organisation and influence in a direct or indirect 
manner,  the  function  and  performance  level  of  the  organisation.    The  interest  in  the 
organisational culture is generated by the strong sensitivity of the institution to the possibility 
to influence the attitude and conduct of the staff.  
To understand more accurately the concept of organisational culture one must highlight 
the relation between culture and organisation. The literature dedicated to the subject deals 
with  an  entire  series  of  different  approaches. Hofstede  (1996,  p.95) mentions  two  of  the 
approaches, namely:  
￿  The  approach  based  on  culture  being  perceived  as  an  asset  owned  by  the 
organisation  which  it  can  shape  and  integrate  in  a  strategy  to  be  used  as  managerial 
instrument; 
￿  The  other  mentioned  approach  considers  culture  as  the  organisation  itself,  the 
aggregate of the experiences jointly generated and lived by the members of a team.  
The organisational culture resides in a set of norms, rules and values which define the 
cultural profile and consolidate the internal consistency of the organisation by the cultural 
programming of the interpersonal relationships of its members (Nicolescu, O., Verboncu I., 
1999, p.45).  Traditionally, the concept of organisational culture values traditions, myths, 
symbols, beliefs, models, attitudes intended to support the individual and group interests of 
the  members  of an  organisation. We are  talking  about  a  set  of  values,  thinking  patterns, 
written and unwritten rules generated through a step by step process of considering certain 
things as "true beyond any doubt" which  define the organisational conduct and routine.  
From the modern perspective, the organisational culture is viewed as the "pattern of 
basic  assumptions  which  a  group  invent,  discover  or  develop  in  learning  to  solve  their 
external  adaptation  and  internal  integration  problems,  which  function  well  enough  to  be 
considered  valid  and,  therefore  are  transmitted  to  new  members  as  the  correct  way  to 
perceive, think and feel in connection with the respective problems" (Schein E., 1985, p.75).   
 
2.  The complexity of the organizational culture at the level of the public 
administration institutions 
 
The  complexity  of  the  problems  which  the  human  society  faces  nowadays  lead  to 
numerous occasions when the private initiative fails to meet the requirements of the occasion 
the intervention of specific institutions to manage the public „affairs”.  In the bureaucratic 
sense  acquired  these  days,  the  public  institutions  represent  the  only  way  of  social  and  
Review of General Management                                                Volume 10, Issue 2, Year 2009  91 
economic organization of the state capable to cope with the modern world challenges (ever 
growing population, diversity and complexity of the human needs that need to be satisfied). 
The coordinates of the public institutions are as follows:  
-  Capacity to handle a large number of tasks ; 
-  Focus on quantification ;  
-  Standard, predictable way of operation;  
-  Focus on the control of those involved in the public service.  
The objective of a public institution is to be at the service of the public interest. At the 
level of relation system of the public institution one identifies two major types of relations, 
namely internal and external, as it can be seen in a schematic presentation in Figure 1.  
RELATIONS  WHO WITH? 
1. INTERNAL  Executive Authority 
Legislative 
Courts of justice 
2. EXTERNAL  NGO’s 
Economic agents 
Individuals, etc. 
 
 
Within  an  organization,  irrespective  of  their  nature,  all  processes  are  sensibly 
influenced when it comes to contents and scope, by the culture developed by the respective 
organization.  The  organizational  culture  of  the  institutions  of  the  local  government  is 
influenced by the following endogen factors: 
-  The history of the institution: even if we talk about traditional institution, within the 
context  of  the  changes  brought  about  by  the  events  of  December  1989  and  further 
corroborating the said events with the accession of Romania to the European Union, the local 
government is still a young institution in search of its personality and organizational culture; 
-  The  employees:  considering  the  fact  that  we  talk  about  a  public  institution,  the 
organizational culture  is influenced mainly  by the  values  and behavioural routines of  the 
public servants, nominated through elective procedures and by expertise criteria selection.  
-  Purpose and objectives: deliberative authority of the local government, constituted at 
county level to coordinate the activity of the communal, town and city councils in order to 
provide public services of county interest; 
- Management system. 
Fig. 1. Relations between the structures of the public service   
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The  institutions  of  the  public  government  have  a  classic,  formal  organizational 
structure, with strong bureaucratic compartments structured according to their purpose and 
specificity.  
Organizations with well defined roles operate very well in stable environments and 
are governed according to the formulae of the bureaucracy. This type of culture ensures a 
high level of safety and prediction.  
Orientation is of the normative type, focused on the strict abidance by the rules and 
procedures,  by  the  working  hours  and  discipline.  The  activity  and  interactions  of  the 
functional  sectors  are  controlled  by  means  of  strict  procedures,  by  clearly  defining  job 
positions and scope of competence, by setting and defining communication channels and be 
settling any and all dispute between the functional sectors. The employees are focused more 
on preparing reports and complying with the administrative procedures without an excessive 
preoccupation for contents. Relations are formal, communication is deficient both inside and 
outside the organization.  
Hierarchy  is the source of  power typical  for this type of  culture where  leverage is 
effected through rules and procedures. The distance from power is big and communication is 
very  formal. People are selected  according to the  way they perform  their role while  the 
norms and procedures represent major methods of leverage. Hierarchic control is regularly 
exerted  with  a  stress  on  abidance  by  the  norms  and  discipline.  By  passing  hierarchic 
authority is considered an act of insubordination.  
To  the  individual,  the  role  type  culture  offers  security  and  is  a  favourable 
opportunity to acquire professional expertise; professionals performing according to the 
standards  are  rewarded.      Deviation  from  the  standard  is  unacceptable  and  the  role 
becomes more important than the person playing it. Therefore, this type of culture is 
not satisfying for a power oriented, ambitious person who wish to exert control over 
his/her own work achievements or who are interested more in results than in methods.  
The role type culture is characterized by high stability and reduced level of risk. This 
type  of  culture  satisfies  the  managers  who  prefer  stability  and  safety  who  want  to  be 
successful by performing their roles and who are interested in gaining expertise in mastering 
and implementing the institution accepted methodology.  
The efficiency of organizations developing a role type culture depends on a rational 
allocation of tasks and responsibilities. The main disadvantage of organizations featuring 
this  culture  pattern  is  rigidity,  vulnerability  to  change,  the  reaction  to  changes  in  the 
external environment being slow and difficult.    
 
  
Review of General Management                                                Volume 10, Issue 2, Year 2009  93 
3.  The role of the organizational culture on the performance of the activity 
of the local public administration institutions 
 
The performance of an organization is highly dependent on its cultural profile, which 
can significantly influence the actions and decisions aimed at meeting targets. In this light, 
organizational  culture  appears  as  one  of  the  factors  having  a  significant  impact  on 
enhancing organization performances, when shared and accepted by all those involved in its 
activity.  
Organizational performance involves efficiency and effectiveness. The latter may be 
defined in terms of extent to which the public institution, as a social system, with certain 
resources  and  means,  successfully  completes  its  mission.  Such  success  depends  on  the 
professionalism and competence of the managerial team, but also on the values, attitudes and 
behaviour of organization members.   
Organizational culture and managerial culture at the level of local government is of 
concern to us, especially because of their impact on the way assumed objectives are set and 
reached.  
Performance  is  the  result  of  the  product  of  the  abilities,  motivation  and  role  of  an 
individual within the organization: P = A x M x R. The perception of work within the local 
government and the employee promotion policy visibly influence their performance. As a 
consequence, the value of the work of the civil servant should be considered according to the 
position held (status), job requirements and the way he/she fits in the value and behaviour 
pattern promoted through organizational culture.  
Organizational culture exercises a strong influence on organization ability to implement 
strategies  aimed at efficiently meeting objectives.  In developing an organizational culture 
promoting performance in the activity of the local government, the main reference points to 
be considered are the following: 
￿  alignment of organizational culture with institution strategies;  
￿   adjustment of organizational culture to change processes;  
￿  implementation of organizational vision and strategies to the fund of values of civil 
servants; 
￿  developing a diversity – oriented culture;  
￿  correct  understanding  of  the  role  of  the  manager  in  the  development  of 
organizational culture; 
￿  consolidation of a pro-active culture to support long-lasting performance;  
Volume 10, Issue 2, Year 2009                                                        Review of General Management  94 
￿  developing  and  maintaining  a  climate  of  confidence  and  cooperation  in  the 
organizational environment;  
￿  stimulating and encouraging employees to permanently seek the improvement and 
development of their potential.  
Organizational  culture  needs  to  be  developed  in  the  context  of  a  competitive 
management.  The  philosophy  of  managers  on  the  way  of  creating,  developing  and 
running the organization, their behaviour, attitudes and aspirations are part of the fund 
of values promoted through managerial culture. This appeals to the set of fundamental 
values governing the activity and behaviour of managers within an organization, values 
which  are  reflected  in  the  decisions  and  actions  they  adopt  and  put  into  practice  in 
running the organization. The individual values of the manager take on “organizational” 
dimensions, being an integral part of the system based on which the fundamental objectives of 
the  institution  are  to  be  met.  His  attitudes  and  expectations  influence  his  organizational 
behaviour and the results he obtains, the same way as the culture of the organization he 
belongs  to  is  most  likely  to  influence  his  personal  convictions.  In  their  turn,  employees 
demonstrate  their  good  faith  towards  the  interests  of  the  institution,  by  taking  on 
responsibilities depending on the value orientation and behaviour of the manager. Therefore, 
the performance of civil servants within the local government is highly dependent on the 
behaviour of the manager, on the values and principles he promotes, on the way these are 
inculcated in employees and, obviously, on the capacity of the latter to assume them. 
The public administration system is frequently criticized for its lack of flexibility and 
resistance  to  change,  incapacity  to  cope  with  the  complex  and  serious  problems  the 
contemporary  society  is  confronted  with.  Rigidity  and  obstinacy  in  sticking  to  obsolete 
organizational  behaviours  given  concrete  expression  in  reactions  of  rejection  of  change 
processes generate negative effects, having serious implications on activity performance. By 
way  of  consequence,  organizational  flexibility  manifested  in  the  ability  to  respond  to 
environment challenges is an essential requirement for the local government institutions to be 
able to adapt to the economic and social realities of the community they serve and to promptly 
meet its needs. In the context of the actual reform of the administrative system in our country, 
the local government needs to be ready to tackle the challenges involved by the alignment to 
the standards of a modern European administration and to offer the community the levers and 
instruments  enabling  it  to  express  and  develop  in  a  community  context.  Seen  from  this 
perspective, institutional management has to be able to develop pro-active strategies oriented 
towards improving organizational structures, enhancing the efficiency and effectiveness of 
government  acts,  accentuating  decision-making  and  action  transparency,  increasing 
responsibility for the public good, in relation with the obligations imposed by the European  
Review of General Management                                                Volume 10, Issue 2, Year 2009  95 
standards in matter of public administration system.  
Organizational culture plays a significant role in sustaining change processes favouring 
the enhancement of activity performance. A change which disregards organizational culture 
may shortly turn out to be a change with no grounds, bound to fail. The development of an 
organizational  cultural  model  stimulating  change  processes  is  one  of  the  most  important 
priorities of local government management. The great majority of employees understand the 
need for change processes, and they feature a positive behaviour, characterized in most cases 
by dynamism, involvement and motivation. A competitive organizational model has to be 
focused on the values of transparency, effectiveness, responsibility and commitment to the 
public good, values which are common to efficient European models of local government. 
Adopting European standards of good practice for quality public services requires changes in 
the organizational structure, the fund of values, attitudes and behaviours of public servants 
(Ştefănescu,  C.,  2009,  p.  210)  .  The  interest  to  the  good  of  the  community  and  the 
responsibility  towards  the  citizen  are  values  of  a  culture  developed  at  institutional  level, 
which should be deemed valid and accepted as the correct model of organizational conduct. 
Another feature common to performance-oriented organizational cultures takes into account 
the fact that the fund of values of managers and employees supports their options for practices 
and behavioural models based on high standards of ethics, the organizational cultural profile 
reflecting, in essence, values and principles oriented towards a moral conduct and honesty.  
 
4. Conclusions 
 
The transition from the phrase “will do for me as is”, from outdated, conservative and 
rigid  mentalities  and  practices  to  an  environment  of  values  and  attitudes  encouraging 
performance,  is  a  process  to  be  completed  as  soon  as  possible  by  the  Romanian  public 
administration  system.  Civil  servants  must  understand  that  meeting  the  requirements  and 
needs of citizens is the essential element of their activity.   
 
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Volume 10, Issue 2, Year 2009                                                        Review of General Management  96 
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SPECIFIC FEATURES OF THE ORGANISATIONAL CULTURE OF THE LOCAL GOVERNMENT

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