What determines senior civil servants’ responsive behaviors to ministers?: Applying mixed-methodology on the relationship between top bureaucrats and ministers in South Korea

Abstract

This study investigates how the relationships between senior civil servants and ministers are formed and how the relationships thus formed shape these civil servants’ responsive behaviors toward ministers. We conducted in-depth interviews and surveys with high-level officials of S. Korean sociocultural ministries, and analyzed the data through mixed methodology to construct a grounded model of the behaviors of the officials vis-à-vis ministers. The results show that the civil servants’ substantive behavior varies from loyalty to tacit resistance, a consequence of the tension between bureaucratic conditions and relations with the minister. In the case of conflicts with ministers, however, senior civil servants tend to become quickly submissive in that they perceive themselves as implementers of ministerial policy and thus as needing to be adaptively accommodative to the political appointees with democratic legitimacy. © 2020, © 2020 The Korean Association for Public Administration.