The Changing Role of the Bhutanese Civil Service within the Bhutanese State

he changing role of public administration globally is often portrayed using the analogy of a boat. The functions of public officials have been associated with ‘rowing’ and ‘steering’ the boat.1 These two functions are reflective of the models of public administration. Rowing represents the hierarchy or the bureaucratic model, and steering represents the market model. The bureaucratic model is the classic formal organisation, which is based on a vertical command structure and rule-based authority. The market model comprises independent agencies that follow self-interest, engage in exchange for mutual benefit, and follow rules that protect property rights and contracts.